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The Danish Government 2004

Action Plan for

Biodiversity and

Nature Conservation

in Denmark

2004-2009

Action Plan for

Biodiversity and

Nature Conservation

in Denmark

2004-2009

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Action Plan for Biodiversity and Nature Conservation in Denmark 2004-2009

Lay-out: Page Leroy Cruce

Photos: Niels Lisborg DahlinFinn Lillethorup HansenErling KrabbeKøbenhavns Energi/Jasper SimonsenOle MallingDennis F. MøllerNana ReimersThomas RetsloffBent WiklundSkov- og Naturstyrelsen

Printed: Schultz Grafisk

Amount: ???

ISBN: 87-7279-568-9

Cover photo: Susåens udløb i Tystrup Bavelsesøerne

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Contents

Preface 04Summary 05

1. Introduction 072. Why an action plan? 09

Efforts are working, but more are needed 09Well-functioning ecosystems require plenty of space and stable conditions 10Fewer wetlands and more nutrients; nevertheless, the negative trendhas been curbed 11Changes in farming methods - industrialisation of agriculture and fisheries 12Nature and manure 12Other effects 14

3. Danish initiatives in an international perspective 15Global Deals - Convention on Biological Diversity 15The Convention on Biodiversity (Convention on Biological Diversity) 15Biodiversity in the EU 16

4. Objectives and priorities of the Action Plan 17Main objectives 17Sector integration and new partnerships 18NATURA 2000 in focus 18International initiatives 20Local partners 20

5. National parks - cross-disciplinary pilot projects 216. Conservation of existing natural assets: natural habitats 22

Legislation 23Planning 23Nature-friendly management of state-owned nature areas 25Active management of nature areas 27Management of marine nature 28Follow-up on the decision to reform the EU Common Agricultural Policy 31Compensation for EU environmental requirements 31

7. Nature restoration and new habitats 328. Management of species and genes 33

Sustainable aquaculture and fisheries management 33Aquaculture 34Species requiring special efforts 36Conservation and sustainable exploitation of genetic resources 36Management of invasive species and GMOs 37Less dead animals 38

9. Increased public awareness of and joint responsibility for nature 39Involving the public 39Biodiversity, economy and welfare 39New partnerships 40Teaching biodiversity 40Information and nature interpretation for all 40

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10. Build-up of knowledge, nature monitoring, and evaluationof the Action Plan 41Build-up of knowledge 41Nature monitoring 41The Inter-Ministerial Working Group 42

11. Legislative initiatives and financing 42

Annex A: 43Overview of the role and function of the different Danish ministries inthe area of biodiversity 43

Annex B: 47The Government’s ten-point programme for implementation of the EuropeanHabitats and Bird Protection Directives 47

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Preface

This Action Plan presents the Danish Government’s proposals for future efforts to pre-serve and safeguard the further development of biological diversity in Denmark. TheGovernment’s objective is to ensure that the loss of biodiversity is stopped by 2010. Thispresents a great challenge and requires targeted efforts within many different areas. Thepurpose of this Action Plan is to serve as a framework for these efforts. It has been theGovernment’s wish that relevant ministries provide their own description of future initia-tives within their specific area. Therefore, this Action Plan gives the first overall descriptionof the many activities to protect nature and biodiversity that will be carried out in the yearsto come.

Results have already been achieved. The decline in natural areas has stopped. Gross pollu-tion is today rare. The air is cleaner, and numerous dangerous toxins are no longer used inDenmark. And nature is repaying us. The population of deer is on the rise, birds are return-ing to Denmark, and rare species of orchids, tree frogs, and freshwater insects are thrivingmore than ever. Nevertheless, great challenges still lie ahead. Modern Denmark is denselypopulated. We consume vast resources, and our impact on the environment is substantial.

Some of the most significant results the Government has already achieved include: workon the establishment of national parks, the adoption of a national forest programme, andthe designation of natural sites with international importance in the form of 254 habitatareas and three new, large offshore bird protection areas. But these will not stand alone. InJanuary 2004 the Government presented a proposal for amendments to the Danish NatureProtection Act and a proposal for a new Danish Forest Act, closely related to the targets setout in this Action Plan.

The basic idea behind the Action Plan is to invest resources in Denmark’s most valuablenatural areas and to ensure we get our money’s worth in terms of more nature. Emphasisis on areas and activities where Denmark is already committed to future efforts underinternational agreements and EU Regulations.

The Action Plan was considered in a public hearing in autumn 2003. During this process anumber of comments were received, which have been included in the text. Other com-ments on prioritisation of efforts and on the use of resources will be considered in connec-tion with the further implementation of the Plan.

The Government will set up an inter-ministerial working group, which will monitor theAction Plan, lay down targeted indicators showing the overall development in the mainareas of biological diversity, and organise a mid-term evaluation with a view to possibleadjustments of the further implementation of the Plan up to 2010.

The Danish Government

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1Summary

71Summary

This Action Plan is the Government’s framework plan for Danish initiatives to protectnature and biodiversity in accordance with EU decisions and the Convention on BiologicalDiversity.

The Action Plan is founded on the principle of investing Danish resources where they willlead to more and better nature. In the years to come, efforts will concentrate on the mostimportant natural areas and activities to which Denmark is especially committed.

The Action Plan presents the following priorities for future initiatives:• Danish NATURA 2000 sites (254 EC habitat areas and 112 EC bird protection areas).• Existing natural areas outside NATURA 2000 sites.• New small biotopes and semi-natural areas within habitat and bird protection areas.• New small biotopes and semi-natural areas outside habitat and bird protection areas.

The Action Plan places great emphasis on the importance of sector integration. Considera-tion for the environment must be integrated into all sectors of society in order to achievesustainable development. The following sectors are especially important: agriculture, fisher-ies, industry, transport, and education. The management of publicly-owned areas is alsoimportant.

Denmark is currently implementing seven national park projects as a step towards the goalof curbing the loss of biodiversity by 2010. These pilot projects will be completed with areport before 1 July 2005. The report will describe visions, content and limitations ofpossible national parks in Denmark. Analyses of nature, recreation and cultural elementswill be carried out and micro and macro-economic consequences examined.

The Environmental Targets Act (Lov om Miljømål etc.) adopted at the end of 2003 coor-dinates efforts within water and nature planning with a view to establishing greater corre-spondence between the quality of nature and Danish water resources. Proposals for revi-sion of the Danish Nature Protection Act and the Danish Forest Act, e.g. as follow-up tothis Action Plan, were recently presented to the Danish Parliament.

The Action Plan for the Aquatic Environment III, launched by the Government in April2004, will continue the positive development initiated by the first two plans. The aquaticenvironment must be further improved through reduced discharges of nitrogen and phos-phorus, and special attention is given to nature management through crop-free buffer zonesalong lakes and watercourses. Another initiative is 300 m protection zones around the mostimportant nature areas, where livestock farms must not be established or extended.

Spatial planning by counties and municipalities constitutes an important tool in the conser-vation and restoration of biodiversity. Danish nature planning will be improved so as tomake it more suitable for setting priorities for nature conservation and restoration.

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The Government will produce concrete initiatives for the conservation of a number ofspecial natural habitats such as nutrient-poor heaths, water meadows, dry grassland, andclearwater lakes. Similarly, management plans will be prepared for special and rare species,and species towards which Denmark is especially committed.

Danish people and businesses making a living from nature must be involved in the manage-ment and implementation of this Action Plan.

An inter-disciplinary working group will follow developments and lay down indicators tomeasure the Plan, as well as contribute proposals for a 2006/7 mid-term evaluation.

The overall objective of Danish development and environmental assistance is to combatpoverty, but Danish assistance should at the same time contribute directly to reducing theloss of biodiversity. DANIDA (Danish International Development Assistance) channelssignificant resources into projects aiming, for instance, at nature and biodiversity enhance-ment.

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2Introduction

112INature and the ecosystems are vital to all life on Earth. Therefore, Denmark must ensureviable and varied natural resources, both for present and future generations. We must safe-guard biological diversity and protect unique and irreplaceable natural assets.

The Danish Government is presenting this overall Action Plan for the conservation ofbiodiversity as follow-up to the National Strategy for Sustainable Development and anumber of international decisions. The objective is to ensure that loss of Danish biodiversityis stopped by 2010. The Action Plan will target efforts to preserve and restore nature. Animportant measure will include integrating considerations of biodiversity into the relevantsector policies and activities.

The Action Plan has been prepared by an inter-ministerial working group with participantsfrom the following ministries: the Ministry of the Environment, the Ministry of Food,Agriculture and Fisheries, the Ministry of Defence, the Ministry of Transport, the Ministryof Economic and Business Affairs, the Ministry of Cultural Affairs and Communications,the Ministry of Education, the Ministry of Justice, the Ministry of Foreign Affairs, and theMinistry of Ecclesiastical Affairs. Annex A lists the functions discharged by the sector min-istries. In a background report from the Ministry of the Environment dated October 2003(on the Danish Forest and Nature Agency website) the contributions from the ministries arepresented.

In June 2002, the Government presented Denmark’s National Strategy for SustainableDevelopment, “A shared future – balanced development”, with targets and principles forsustainable development. One objective of the Strategy is to secure a high degree ofbiodiversity and preserve Denmark’s ecosystems.

The Strategy was subsequently presented at the World Summit on Sustainable Develop-ment in South Africa in August 2002. But the objective to stop the loss of biodiversity isalso an integral part of a number of other international contexts which Denmark is part of,for instance, targets laid down by the EU heads of state and government in Gothenburg in2001, and in the EU’s Sixth Environment Action Programme. Moreover, Denmark hascommitted itself internationally to safeguarding biodiversity through a number of interna-tional agreements, not the least when ratifying the Convention on Biological Diversity from1992 and through cooperation within the EU. In addition, we have a moral duty to preventspecies and natural habitats, which have developed over thousands of years, from disap-pearing due to poor management over a few decades.

The Action Plan is based on further development of well-proven activities, but also pointsin new directions. It is a framework plan for the overall initiatives the Government willinstigate in order to safeguard biodiversity and preserve nature. The Action Plan is not anisolated effort; it should be seen in context with the many nature and environmental initia-tives being carried out by several Danish ministries. The Convention on Biological Diversity

Introduction

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also covers farm animals and utility crop. Therefore, the Action Plan should also be viewedin context with other strategies and action plans regarding farm animal genetic and plantgenetic resources that the Government has already presented or will put forward sometimeduring 2004.

Successful implementation of the Action Plan is not only the responsibility of legislatorsand the authorities. Fulfilment of the objectives requires broad public support and mutualefforts from many different groups in society. It will require commitment and positivecontributions from industry. This includes not only agriculture and fisheries, which directlyimpact nature, but also all other sectors, which, one way or another, depend on and influ-ence nature.

In Denmark, we do not have impenetrable tropical rain forests with examples of some ofthe richest biodiversity on Earth. Moreover, Denmark’s geographical characteristics do notinclude far-stretching savannahs, homes for rhinos and large flocks of other endangeredmammals. Neither do they include colourful coral reeves and exotic fish. Nevertheless,Denmark is home for many species and types of nature of European and internationalsignificance. This includes, not the least, our shallow-water marine areas and the plant andanimal life living in the 7,600 km of Danish coastline. And on land, we have important andrare natural areas, such as the dune heaths along the west coat of Jutland.

In an international perspective, Denmark is important to biodiversity due to its geographi-cal location between north and south, and between the salt water of the North Sea and thebrackish water of the Baltic Sea. During the winter season, the Jutland Wadden Sea, theshallow areas of the Danish waters and the wetlands are home for waterfowl from Scan-dinavia and large parts of Russia. In springtime, millions of migrating birds arrive in Den-mark to breed or forage on their way north. Biodiversity in Denmark is therefore aninternational responsibility and common property. With the view to preserving Denmark’snatural areas of international importance, the Government has designated 254 EC habitatareas and 112 EC bird protection areas (the so-called NATURA 2000 sites).

Initiatives to halt the decline in biodiversity before 2010 must be as resource efficient aspossible. The Action Plan therefore lays down clear priorities for future efforts:

1st priority: Existing natural areas, including small biotopes and semi-natural areas(section 3 areas) within NATURA 2000 sites and national parks.

2nd priority Other existing natural areas, including small biotopes and semi-natural areas(section 3 areas) outside NATURA 2000 sites and national parks.

3rd priority: New small biotopes and semi-natural areas within NATURA 2000 sites andnational parks.

4th priority: New small biotopes and semi-natural areas outside NATURA 2000 sites etc.linked ecologically with other natural areas.

Cooperation with other countries with which we share ecosystems helps give us the mostcost-effective solution for society when achieving biodiversity objectives. This applies towork within the NATURA network and, at broader European level, within the Pan-Euro-pean Ecological Network. Denmark will work to encourage the rest of the world toemploy Europe’s idea of networks of protected sites.

Based i.a. on socio-economic analyses, the Government will carry out targeted measures tostop the decline of biodiversity by 2010, in accordance with the objectives of the EU and

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the Danish Government. Measures will be directed towards areas where the benefits achievedare greatest, and where improvements can also be achieved with respect to outdoor recrea-tional activities, groundwater quality and reduction of emissions of CO2, resulting in over-all economic benefits to society.

Prioritisation of efforts in the years to come will include analyses relating to: managementof meadows, dry grassland, heaths and marshland; conversion of 100,000 ha of intensivelycultivated areas with shallow depth of soil into riparian meadows; and establishment ofbuffer zones around nature areas that are particularly sensitive to deposition of airbornenitrogen compounds. Analyses have been made to assess the value of afforestation. Theprojects show that all in all, appropriate location of afforestation projects will yield anoverall economic benefit to society.

As part of the implementation of the Action Plan, future efforts will also include optimisationof resource consumption through the establishment of new, economic partnerships. Thiswill help break old habits. It is important that we involve more people in the work, and thatwe allow ourselves to be inspired by countries where the private sector is involved in, andcarries out important tasks in this field.

The Action Plan will help secure that Denmark maintains and encourages efforts to pre-serve biodiversity; a positive trend, which is already beginning to show. In areas wherebiodiversity is still in decline, the Action Plan will contribute to curbing the negative devel-opment. The Action Plan is Denmark’s contribution to preserving global biodiversity and itrepresents our contribution to making sure that our children and our children’s children andgrandchildren may experience varied Danish fauna and flora.

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3Why an action plan?

153Efforts are working, but more are neededConcrete and positive effects of initiatives carried out within the last 25-30 years can bediscerned today.

Most of the 20th century saw a drastic decline in the total area of natural habitats such asheaths, coastal meadows, freshwater meadows, water holes, shallow lakes and fjords, andother wetland areas. Today, this trend has been curbed, but in many places the quality ofnatural areas is still deteriorating, not least due to continued pollution from nutrients. In thelast decade numerous lakes, streams, and wetlands have been restored in Denmark. Water-courses that had been straightened have been re-established as meandering streams; ob-structions of watercourses have been removed; the total area of forest is increasing, slowlybut steadily; and large numbers of game reserves and international nature conservationareas are being established.

Pollution, which was a visible fact just 20 years ago in almost all watercourses, lakes, andfjords in Denmark, has become far more rare. The quality of Danish fresh waters has beenimproved, which has given us clearer lakes and caused the return of stone flies and otherwater insects to the streams and watercourses where pollution previously threatened theirexistence. Over the years, management of fish stocks has contributed to re-establishing fishstocks in Danish fresh waters. Previous initiatives primarily concentrated on release of fish;a type of initiative, which is often characterised as reactive rather than proactive. Today,there is more emphasis on creating better conditions for growth through watercourse andlake restoration.

Just 25 years ago, acidification caused by atmospheric sulphur dioxide pollution threatenedthe biological life in a number of Denmark’s clearwater lakes. Today, Danish flora andfauna are no longer threatened by acidification, and the health of Danish tree species hasbeen improved. On the one hand, contamination with chlorinated hydrocarbons, such asDDT and PCB, and mercury has been significantly reduced. But on the other hand, anumber of new substances, suspected of having negative impacts on the environment,have become a problem.

Bans against a number of dangerous toxins, the designation of protected sites, huntingregulations, and nature restoration projects have helped many of Denmark’s largest andmost endangered species of bird, such as the white-tailed eagle, the peregrine falcon, thecommon crane, the Eurasian spoonbill, and the corn crake. These birds are now returningto breed in Denmark. Several of Denmark’s largest mammals, for example, roe deer andelk, are also increasing in population. The otter is slowly becoming widespread in Jutland,and this year, for the first time in many years, the grey seal has been breeding successfully inDanish waters.

These and many other positive examples prove that our efforts are working.

Why an action plan?

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Other areas, however, still present sweeping challenges. Botanists assess that one third ofDenmark’s wild plant species is on the verge of disappearing, and that the number ofbutterflies in the Danish landscape is gradually falling. The black grouse disappeared fromJutland in 1998-99, and no stork chicks have been bred in Denmark since 2000. Some ofthe more substantial reasons for the negative trend include additions of nutrients to the landand sea, and discontinuation of extensive farming. However, other factors also play a part,for instance traffic, energy, industry and households.

Well-functioning ecosystems require plenty of space and stable conditionsConservation of biological diversity is about securing well-functioning ecosystems andprotecting plant and animal species. Healthy and resilient ecosystems are fundamental tobiodiversity and a prerequisite for preserving a number of the positive natural processes,which are vital for production in agriculture, forestry, and the fisheries industry. The lack ofwell-functioning water cycles, a stable climate, secured pollination of utility crops, and fishstocks able to reproduce, will cause problems for even the most modern of societies.Safeguarding biodiversity is therefore a necessary step in achieving sustainable develop-ment. The preservation of diverse and varied landscapes is central when safeguarding eco-systems. They are essential for variety of plants, animals, insects, microorganisms, and theirgenetic variants, which in turn creates resilient ecosystems.

Denmark is intensely cultivated, which is why the proportional area of natural landscapeand marine culture is relatively small compared to other countries. Open natural habitatssuch as dunes, heaths, coastal meadows, and marshes cover around 9 per cent of Den-mark.

Since the beginning of the 19th century, the area of forest in Denmark has increased from2-4 per cent to approximately 11 per cent. However, the area of original forest, especiallyvaluable to biodiversity, has been reduced during the last 200 years, and today this areamakes up only a fraction of Denmark’s total area.

Up until the mid 1980s, the presence of small biotopes on agricultural land was steadilyfalling. Today, however, their presence is increasing. As a whole, Danish natural habitats aresmall in size, and often they constitute isolated spots in the midst of agriculture’s largestretches of cultivated land.

Small and detached natural habitats are very much influenced by their surroundings becauseimpacts from outside influence a relatively large part of the area. What is more, smallnatural habitats provide homes for relatively few plants and animals compared to largenatural habitats. As a consequence, small populations of animal and plant species are farmore at risk of becoming extinct than large populations. Because of the isolated positionof many natural landscapes in Denmark and the significance of edge effect, ecologicalprocesses - such as material flows, succession, and the food chain - are exposed to negativeimpacts from the surroundings; just as these conditions lead to fluctuations in animal andplant populations.

Denmark only has a few historic natural areas where plants and animals have been allowedto evolve naturally and continuously over a longer period of time. The conservation ofsuch valuable historic natural areas is one of the most fundamental prerequisites whenmaintaining biodiversity.

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Fewer wetlands and more nutrients; nevertheless, the negative trend hasbeen curbedThroughout the last 100-150 years the Danish landscape has become more and more dry.Only a few wetland areas are left compared to previously. Many watercourses and streamsare maintained in order to provide efficient drainage of fields. However, this causes theirvalue as habitats for plants and animals to deteriorate significantly.

As part of the general socioeconomic development, about 200,000 ha of wetland has beendrained and reclaimed as a consequence of reclamation projects. However, this trend hasbeen turned around and since 1989 about 10,000 ha of wetland has been re-established viapublic nature restoration. At the same time, the implementation of the Action Plan for theAquatic Environment II means an ongoing restoration and re-establishment of water-courses and lakes, as well as establishment or re-establishment of water meadows andwater holes. Many of the areas that have been drained today constitute marginal land, onwhich cultivation interest is decreasing or has ceased altogether. In this case, nature restora-tion, for example in combination with land consolidation, can help promote nature andenvironmental interests, and help solve local, structural problems in agriculture.

Large additions of nutrient salts – in particular nitrogen and phosphorous compounds –are a problem in all natural areas, on land, in lakes, in fjords, and in the sea. Increasedadditions of nutrient salts, and the associated intensified production of organic materials,generate radical changes in the composition of species, and, in most places, also a decline inthe number of species. However, in watercourses situated in cultivated fringe areas concen-trations of nitrogen are generally on the decline. Furthermore, the discharge of phospho-rous from wastewater treatment plants and industry to large streams is no longer a prob-lem. The main conclusion of national monitoring of the aquatic environment from 2002 isthat since 1989 discharges of nutrient salts with wastewater and from cultivated areas havebeen significantly reduced. These reductions have improved nature and environmental con-ditions in lakes and marine areas. Nevertheless, many small watercourses and streams arestill being radically influenced by wastewater from sparsely built-up areas.

From 1989 to 2000, concentrations of phosphorous in Danish lakes have fallen by 50 percent. However, additions of phosphorous to the aquatic environment from cultivated ar-eas remain a problem. Future estimates of the contents and the flow of phosphorous inDanish watercourses are inconclusive. Continued reductions in additions of wastewaterfrom wastewater treatment plants are expected, and the release of accumulated phospho-rous into lakes will lessen gradually. On the other hand, it is likely that runoffs from culti-vated areas will increase in future years because additions of phosphorous including live-stock manure are generally high, causing the continued increase of phosphorous contents inthe soil. Although the state of watercourses and lakes exposed to organic substances andnutrients has improved considerably, only half of all Danish watercourses and lakes live upto the environmental standard defined in regional plans. Phosphorus from banks and riskareas is the primary source of phosphorus leaching to watercourses and lakes. Alsowastewater from scarcely built-up areas plays a role.

The many natural areas on land are often strongly influenced by nutrient substances accu-mulated over several years, especially roadsides and small biotopes, but also other naturalhabitats in direct contact with surrounding farmland. Emissions of ammonia from manuretanks and from spreading of livestock manure constitute a special problem to natural areasvulnerable to airborne nitrogens in ammonia. This is a problem even though emissions ofammonia from agriculture have been reduced during the last decade by more than 30 per

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cent. The evaluation of the Action Plan for the Aquatic Environment II shows that thegoals set in the plan have been achieved.

Overall, the two action plans for the aquatic environment and the reforms of the EUagricultural policy have been central to the reduction of nitrogen and phosphorous surplusfrom agriculture by 25 per cent and 30 per cent, respectively, during the period 1990-2001.These are important steps in the right direction.

Changes in farming methods – industrialisation of agriculture and fisheriesMuch of Denmark’s terrestrial landscape is dependent on farming methods applied inagriculture. Similarly, our natural seascapes are often influenced by discharges of nutrientsfrom land, whereas changes in the intensity of fishing may influence fish stocks.

Changes in farming methods can have several different consequences. In earlier times, graz-ing and harvesting of commons and meadows, as well as heaths grazed by sheep, were anatural part of farming. These old methods are no longer economically profitable or nec-essary elements in agricultural production. The areas are left to overgrow and thus thespecial and varied living conditions dependent on grazing and harvesting of dry grasslanddisappear. Attempts are being made to counter this development through grazing schemesfor larger coherent meadows. But existing initiatives are far from adequate. An estimated180,000 ha of meadow and dry grassland etc. today are either not being maintained at all,or are being maintained to an extent not adequate for their future existence. Around onehalf of all open natural habitats is thus threatened by overgrowing.

In other areas, both agriculture and fisheries have intensified in recent years. This develop-ment has left its mark on the natural diversity of arable land and the sea. A number ofinitiatives countering this negative development have been or are in the process of beingimplemented. This applies for instance to the action plans for the aquatic environment,measures under the EU Nitrate Directive, and agro-environmental support schemes andset-aside schemes, which all contribute to alleviating the effects of intensive production,and, in some areas, to retaining, improving, or increasing natural diversity.

Nature and manureAdditions of nutrients, including nitrogen compounds from agriculture in particular, con-stitute one of the most significant negative impacts on nature in open areas and in theaquatic environment. As part of Denmark’s commitment under the Nitrate Directive andthe Gothenburg Protocol, the application of nitrogens by agriculture is being regulatedcontinuously.

In order to reduce discharges of nitrogens to the aquatic environment, in particular, butalso increasingly to the terrestrial environment, Denmark implemented the Action Plan forthe Aquatic Environment I in 1987, and in 1998 followed this up with the Action Plan forthe Aquatic Environment II.

Work related to the Action Plans for the Aquatic Environment has been successful, and thegoals set in Action Plans I and II have been reached. Leaching of nitrate has been halved,the consumption of nitrogen fertiliser has been halved. However, the protection of theaquatic environment also calls for long-term measures in other fields, for instance relatingto phosphorus.

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The Action Plan for the Aquatic Environment III launched by the Government in April2004 will continue the positive development initiated by the first two Action Plans. Theaquatic environment shall be further improved by reduced discharges of nitrogen andphosphorus, nature protection efforts shall be further improved, and nuisances experi-enced by neighbours to agricultural activities shall be limited.

The Action Plan for the Aquatic Environment III is very closely related to the implementa-tion of the EU Water Framework Directive and the Habitats Directive, which state thatobjectives and programmes of measures for individual water bodies and natural habitatsto apply from 2009 must be laid down. The main rule is that the objectives must be met by2015.

10-year agreement period – coordination with the Water FrameworkDirectiveThis Agreement runs from 2005 to 2015 with evaluations in 2008 and 2011 respectively.When carrying out these evaluations, progress with regard to the general reduction objec-tives will be assessed, and the need for further initiatives can be analysed. The regionalobjectives for the status of the individual water bodies and natural habitats are laid down inaccordance with the requirements in the EU directives for the end of 2008. Therefore, atthe evaluation in 2008, it will be possible to assess the effects of the efforts thus far inrelation to these objectives.

Reduction of excess phosphorous - objective of 50 per cent reductionAgriculture’s excess phosphorous must be halved compared to the 32,700 tonnes P in2001/2002. A reduction of the excess phosphorous of 25 per cent by 2009 will be achievedthrough a tax of DKK 4 per kg of mineral phosphorous in feed and through generalimprovement of the phosphorous balance by 3,000 tonnes on the basis of new knowledgeacquired through the research programme. In the period from 2009 to 2015 there will bea further 25 per cent reduction. The Parties to this Agreement will discuss the possibility oftightening the reduction objective, if it appears that technological development permits this.The need for changed/new instruments will be assessed in the evaluations. Revenues fromthis tax will be returned to agriculture through a reduction in land taxes in accordance withthe principles of the Government’s tax freeze.

Reduction in discharges of phosphorous - 50,000 ha of buffer zonesA focused effort will be made with regard to phosphorous discharges. Close to 30,000 haof 10-metre crop-free buffer zones along rivers and lakes before 2009 and a further 20,000ha before 2015 will be established. The buffer zones will be established by voluntary trans-fers of set-aside land along lakes and rivers. In order to support the establishment of crop-free buffer zones through siting set-aside land, an additional subsidy under the agri-environ-mental measures for crop-free buffer zones established along rivers and lakes will be intro-duced. The buffer zones will retain phosphorous from other areas and they will protectbanks along rivers and lakes, and in this way the discharge of phosphorous will be reduced.

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Objective and instruments for a minimum 13 per cent reduction innitrogen leachingNitrogen leaching from agriculture is to be reduced by a minimum of 13 per cent by 2015compared to 2003.

The structural development, including setting aside land, improved feed utilisation, and theimplementation of the new EU agricultural reform are expected to lead to a reduction innitrogen leaching from agriculture of approx. 11,200 tonnes N before 2015. In addition,afforestation in the range of 20,000-25,000 ha will contribute to reducing nitrogen leachingby approx. 900 tonnes N.

Initiatives have also been taken in relation to the rules for late crops, establishment ofanother 4,000 ha of wetland in 2004 and 2005, and less strict requirements for nitrogenremoval, down to 100 kg N/ha for agri-environmental areas.

Protection of particularly vulnerable natureWith a view to protecting ammonia-sensitive habitats, 300-metre buffer zones are estab-lished around all raised bogs, all lobelia lakes, all – to start with – heaths larger than 10 ha,and all endangered and low-nutrient dry grassland larger than 2.5 ha, as well as all endan-gered heaths, dry grassland, and other particularly vulnerable types of natural habitat in theNatura 2000 sites. The total area where buffer zones are designated constitutes just over 7per cent, corresponding to just over 180,000 ha. Within this buffer zone and within the areaitself, no extension of livestock farms can take place if such an extension would lead toincreased ammonia discharges in natural areas vulnerable to ammonia. Application of newtechnology may be used in such an assessment. Final designation of these areas will takeplace through the natural planning by counties up to 2009.

Other effectsDanish flora and fauna are also dependent on many other factors and effects. This appliesto species, natural habitats and ecological cycles. For example, increased globalisation leadsto a growing number of alien species being introduced to Denmark. Some of the newspecies do not give rise to any problems in nature, however others do.

The use of pesticides affects living conditions for wild plants and animal species in produc-tion areas and drifts to adjacent areas. What is more, pesticides can affect the material flowand lead to deterioration of soil ecosystems. On 10 October 2003 the Government pub-lished Pesticide Plan 2004-2009 for reducing pesticide consumption and its impact on the environment.The basis for the Pesticide Plan is the fact that use of pesticides not only effects pests, butalso effects the remaining flora and fauna, just as pesticide residues may spread in thesurrounding environment. Efforts must therefore be based on an efficient approval schemeand on minimisation of the use of pesticides to a level still allowing for profitable cultiva-tion. The Pesticide Plan contains initiatives to reduce pesticide consumption in agriculture,fruit growing and horticulture, as well as initiatives to reduce private use of pesticides. Inaddition, the Pesticide Plan lays down targets for establishment of spray-free buffer zonesalong identified watercourses and lakes, as well as initiatives to protect Danish groundwater.The Pesticide Plan follows the same anticipated timetable as the Action Plan for Biodiversityand Nature Conservation. Therefore, pesticides are not treated individually in the latter. Forthe same reason the Action Plan for Biodiversity and Nature Conservation does not deal

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with substances harmful to the environment, e.g. oil and chemical products, which can havenegative effects on natural habitats.

Finally, climate changes will lead to further stress on ecosystem functions and valuable Dan-ish habitats. By ensuring that there is greater variation, resilience, volume and quality ofnature, the capacity of nature to adapt can be increased.

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4Danish initiatives in aninternational perspective

234Global Deals – Convention on Biological DiversityBiodiversity has an important role in sustainable development and in combating poverty.These two objectives characterise initiatives throughout the world. Globally and nationally.In the UN and the EU. The Action Plan is a concrete Danish initiative in this context. Aninitiative we have agreed on through our participation in the Convention on BiologicalDiversity, in which the other EU Member States also participate.

Ever since the first World Summit on the environment in Rio de Janeiro in 1992, biodiversityhas been an important item on the international agenda. There are many core areas: Froma Danish perspective, work under the UN Convention on Biological Diversity and in theEU is particularly important. UN work, because it sets the agenda for global initiatives. EUwork, because biodiversity is thereby included in specific aspects of EU policies. Within theEU and the UN, there is general agreement to move from policy development to imple-mentation of specific initiatives.

The Convention on Biodiversity (Convention on Biological Diversity)The objective of the Convention on Biological Diversity is not only to protect biodiversity,but also to ensure that nature’s resources are utilised in a sustainable manner and secure a fairdivision of the gains from genetic resources. In this manner the Convention combines thepreservation of nature with consideration of development and reaches far further thanprevious nature protection conventions that have focused on particular endangered speciesor habitats.

At the Convention’s sixth Convention of the Parties in 2002, a strategic plan was adoptedto achieve the overall objective of a significant reduction in the loss of biodiversity before2010. The strategic objectives are:

1. The Convention is fulfilling its leadership role in international biodiversity issues.

2. Parties have improved financial, human, scientific, technical, and technological capacityto implement the Convention.

3. National biodiversity strategies and Action Plans and the integration of biodiversityconcerns into relevant sectors serve as an effective framework for the implementation oof the objectives of the Convention.

4. There is a better understanding of the importance of biodiversity and of theConvention, and this has led to broader engagement across society in implementation.

Danish initiatives in aninternational perspective

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At the UN World Summit in Johannesburg in 2002, the Danish Government and the otherMember States reached a mutual agreement to achieve a significant reduction in the loss ofbiodiversity before 2010. It was also agreed to protect the most valuable natural areas andto promote national and regional biodiversity networks. This is one of the main issues to beaddressed at the next COP to the Convention on Biological Diversity, which will be held inMarch 2004.

Work under the Convention on Biological Diversity will play a much greater part in themany other international negotiations where nature is on the agenda. This applies to theConvention on Trade with Endangered Animals and Plants (CITES, the Washington Con-vention), the Convention on Populations of Migratory Species (the Bonn Convention), theConvention on Wetlands (the Ramsar Convention), the regional conventions for the pro-tection of the marine environment in the North East Atlantic (OSPAR) and in the Baltic Sea(HELCOM) and the European Landscape Convention. This also applies to negotiationsconcerning utilisation of natural resources in e.g. FAO and the United Nations Forum ofForests as well as the International Tropical Timber Organization (ITTO) and the Ministe-rial Conference on the Protection of Forests in Europe (MCPFE).

In 2001, FAO adopted an international treaty on plant genetic resources for food andagriculture. The treaty is in accordance with the convention on biodiversity, and sets outbinding guidelines for conservation and use of crop plants and their wild relatives.

Biodiversity in the EUThe Danish Government’s objective to ensure that loss of biodiversity is curbed by 2010 atthe latest is shared by the EU. The political decisions regarding biodiversity at EU level, thatDenmark to a large degree has contributed to, constitute an important part of the basis ofthe Danish Government’s Action Plan. Danish efforts will be extremely effective whenlinked to initiatives in the other EU Member States. Moreover, by adhering to EU prioritiesin Denmark’s national policies, we can achieve substantial interaction with a number of EUsector policies and subsidy schemes both with regard to content and finances.

In 1998 the EU Ministers for the Environment agreed on a Community Biodiversity Strat-egy. The Strategy focuses on the importance of integrating biodiversity considerations intorelevant sector policies. As a follow-up to this, four Biodiversity Action Plans have beenprepared. The Action Plans cover Conservation of Natural Resources, Agriculture, Fisher-ies and Economic Development Co-operation. Together they constitute a binding frame-work for the initiatives in this area taken by the Commission and EU Member States.

All the Member States have committed themselves to giving priority to the implementationof the NATURA 2000 network of bird protection and habitat areas through the EUBiodiversity Action Plan for the Conservation of Natural Resources. Member States mustalso protect species and habitats that are not included in this network. Prioritising in thismanner is a general characteristic of Danish initiatives regarding biodiversity in the years tocome. A precondition for full implementation of NATURA 2000 is that both the EU andthe Member States secure the necessary economic instruments. Denmark has already ful-filled another of the overall objectives of the EU, namely speedy ratification and full imple-mentation of the Cartagena Protocol on Biosafety. This was the case when Denmark joinedthe Protocol in 2002.

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With regard to fisheries, EU Action Plans encourage implementation of targeted measuresand actions in areas where biodiversity is particularly threatened due to fisheries andaquaculture. Pressure from fishing should be restricted to areas where there is an imbalancebetween fishing activity and fish stocks, and it may be necessary to further develop theadministrative tools used in fisheries policies – closing of areas, sheltered marine areas andestablishing or improving habitats for specific species.

The EU Biodiversity Action Plan for Agriculture includes seven prioritised areas for initia-tives. These include maintaining economically viable and socially acceptable agriculture, par-ticularly in areas with a wealth of biodiversity and where biodiversity has suffered losses,and securing ecological infrastructures. Environmentally sound agricultural measures shouldbe used for preservation purposes and sustainable utilisation of biodiversity. Geneticbiodiversity should be preserved and the uncontrollable spread of non-native species shouldbe avoided.

The European Commission expects to present proposals for a new regulation on theconservation of genetic resources very soon, following up the support programme previ-ously operated by the EU

The Action Plan for economic cooperation and development cooperation describes initia-tives to integrate biodiversity considerations into EU policies for development cooperationwith developing countries and the Eastern and Central European countries in three inter-connected areas; intensive production systems (agriculture, orchards, aquaculture, etc.), pro-duction systems that include wild species, as well as protected areas.

The effectiveness will be all the greater when both Eastern Europe and Western Europeagree on areas for initiatives. At the Pan European Conference of Ministers for the Envi-ronment in May 2003, all the European Ministers for the Environment agreed to adopt theEU 2010 targets in their national policies. A number of sub-targets were also set concern-ing:• common criteria for agricultural areas with substantial natural diversity by 2006,• protection of a substantial proportion of these agricultural areas through nature and

environment-friendly agriculture and subsidy schemes for these areas by 2008,• protection of all core areas in the Pan European Ecological Network by 2008,• that at least half of the European countries have implemented Action Plans for

education, communication and awareness as regards biodiversity by 2008.

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5Objectives and prioritiesof the Action Plan

275Main objectivesThe framework for the Government’s policy on nature has been incorporated into Den-mark’s National Strategy for Sustainable Development – “A Shared Future – BalancedDevelopment”, introduced by the Government in June 2002 and presented as an impor-tant Danish contribution at the World Summit on sustainable development in South Africain August 2002. The Strategy sets eight objectives and principles for the Danish vision ofsustainable development:

1) The welfare society must be developed and economic growth must be decoupled fromenvironmental impacts.

2) There must be a safe and healthy environment for everyone, and we must maintain ahigh level of protection.

3) We must secure a high degree of biodiversity and protect the ecosystems.4) Resources must be used more efficiently.5) We must take action at an international level6) Environmental considerations must be taken into account in all sectors.7) The market must support sustainable development.8) Sustainable development is a shared responsibility, and we must measure progress.

The main themes in the Government’s policy on nature were presented in the Govern-ment’s proposal for this area from 8 August 2002, and the proposal has already beenfollowed up in a report on nature policy that was discussed in the Folketing on 22 Novem-ber 2002.

The objective is to ensure that loss of biodiversity is stopped by 2010.

Sector integration and new partnershipsNew ideas are needed. First and foremost, sector integration in the nature and environmentarea should be supported and promoted. Everyone – private enterprises as well as publicauthorities – should be aware of their responsibility and thereby contribute accordingly.Therefore through this Action Plan the Danish Government has described how considera-tion of the environment and biodiversity can be integrated into many sectors of society.The task is demanding. It is so demanding that it is no longer feasible that any single ministrycan be solely responsible for solving it. Therefore the Danish Government has asked that allthe ministries – based on their own approach – describe initiatives in their area for the yearsto come. The Danish Government will develop further this new and broad approach in thecoming years in an Inter-Ministerial Biodiversity Working Group. The Danish Governmentset up this Working Group to follow the further implementation of the Action Plan and to

Objectives and prioritiesof the Action Plan

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secure continued and increased sector integration. Furthermore, the Working Group is todevelop a set of indicators that can follow developments.

The Working Group will include representatives from ministries that have a special interestin biodiversity, that is, in addition to the Ministry of the Environment (the chair), the Minis-try of Food, Agriculture and Fisheries, the Ministry of Transport and the Ministry of De-fence.

The Action Plan presents a number of specific initiatives that the different ministries will tryto implement or support within their own areas. In addition to the Ministry of the Environ-ment, these are: the Ministry of Food, Agriculture and Fisheries, the Ministry of Defence,the Ministry of Transport, the Ministry of Economic and Business Affairs, the Ministry ofCulture, the Ministry of Education, the Ministry of Foreign Affairs, the Ministry of Justice,and the Ministry of Ecclesiastical Affairs. The initiatives are described in brief in the relevantsections (5-9).

To achieve the main objectives of the plan, Denmark must involve new partnerships, i.e.segments of Danish society who perhaps have not played an important or obvious role inthis area before, but who have the will and the resources to do so. Progress is more than justfinancial resources. One specific way to achieve this is to develop new partnerships betweenthe private and public sectors. This holds great potential. The Danish Government hasalready entered into a number of partnerships with local authorities, waterworks and oth-ers in a joint effort to establish new forests and nature close to larger cities and towns.Closer cooperation between potential stakeholders, including waterworks, local authoritiesand nature organisations, will contribute to optimising efforts, and enhance nature, recrea-tional activities and groundwater protection in the most cost-effective way. Hence therehave been a growing number of initiatives for afforestation in particular, leading to im-proved recreational opportunities, cleaner drinking water and more nature. It has beenagreed to plant 4,000 ha forest around Copenhagen, Aarhus and Aalborg in the comingyears. In this way, partnerships contribute to realising projects to improve the environment.Specific projects like this, which of course should be supported by local residents, will inmany cases lead to benefits for all parties. An agreement has also been made with theDanish Outdoor Council to establish further pilot project areas for national parks forDKK 20 million as a supplement the DKK 20 million that have been allocated for thispurpose in the Finance Act.

NATURA 2000 in focusIt is necessary to give the same priority to nature as is given to other areas in society. All ofnature is not equally important. The NATURA 2000 network and the habitats protected bysection 3 in the Danish Nature Protection Act (e.g. heaths, dry grasslands, raised bogs,coastal meadows, lakes, and watercourses) indicate which natural habitats we consider mostvaluable. Moreover, NATURA 2000 includes a special obligation with regard to the EU topreserve or restore favourable conservation status in the areas the Government finds im-portant.

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What is NATURA 2000?NATURA 2000 is a generic term for bird protection areas and habitat areas.

Bird protection areas have been designated in an effort to preserve populations of rarebreeding birds or large concentrations of migrating birds. Habitat areas have been desig-nated to preserve populations of rare animals and plants as well as different types ofnature.

Member States have committed themselves to administrating the areas with a view toensuring that species and habitats are given favourable conservation status. Together theareas make up the so-called NATURA 2000 network which will be one of the mostimportant contributions to achieving the objective of stopping the reduction in biodiversityby 2010.

TheWilhjelm Committee also had this as their starting point, and suggested that initiativesshould primarily focus on preservation of existing nature. The background for the projectis that it may take up to 100 years to restore certain habitats should they disappear.

The basic idea behind the Action Plan is to invest resources in Denmark’s most valuablenatural areas. By designating NATURA 2000 sites at national level, an analysis and assess-ment of the natural diversity in a number of Denmark’s best natural areas has already beencarried out. Thereby the NATURA 2000 sites comprise a broad range of biodiversity ofhigh quality, also seen in a European context. Targeting future efforts so they are primarilyimplemented in these areas will make efforts more efficient and secure the best nature forthe money. The Action Plan therefore lays down clear priorities for future efforts:

1st priority: Existing natural areas, including small biotopes and semi-natural areas(section 3 areas) in NATURA 2000 sites and national parks.

2nd priority Other existing natural areas, including small biotopes and semi-natural areas(section 3 areas) outside NATURA 2000 sites and national parks.

3rd priority: New small biotopes and semi-natural areas in NATURA 2000 sites andnational parks.

4th priority: New small biotopes and semi-natural areas outside NATURA 2000 sites etc.linked ecologically with other natural areas.

This prioritisation illustrates a general wish to create an overview and target economicefforts, particularly in publicly financed subsidy schemes. However specific assessments ofthe individual case may be required, so prioritisation does not serve to block the bestsolutions as regards nature. Therefore in some areas, greater gains for nature can be achievedby restoring habitats that have otherwise disappeared and linking them to existing isolatednatural areas rather than by spending resources on areas with little natural diversity.

The Danish Government is striving to implement its commitments in accordance withNATURA 2000 through a 10-point programme. The first point in the programme hasalready been implemented, that is the designation of the NATURA 2000 sites and the callto the regional authorities to implement nature management. The next points, for examplepreparation of criteria for favourable conservation status and the monitoring programmeNOVANA are available. A number of points, including implementation of nature man-

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agement and other initiatives, will be implemented up to 2009. The 10-point programmefor implementation of the European Habitats and Birds Directives can be seen in Annex B.

International initiativesDenmark will strive to keep biological diversity on the international agenda for sustainabledevelopment and combating poverty, and we will also strive to unite efforts made byinternational organisations and conventions concerning utilisation of natural resources withregard to the 2010 objective of the Convention on Biological Diversity.

Being the host for the global information network on biodiversity – Global BiodiversityInformation Technology Facility – Denmark is centrally placed in the efforts to developmethods and collect information on the status of global biodiversity.

Traditionally Denmark has given high priority to the overall objectives of the Conventionon Biological Diversity regarding an equal and just division of the yield from genetic re-sources. This is an important incentive for protecting and utilising biodiversity in a sustain-able manner, particularly in developing countries that have a wealth of biodiversity. Theconvention also establishes that access to genetic resources must be based on the conditionslaid down by the country of origin. This also applies to indigenous peoples and the localcommunity when making use of their knowledge of nature. In this connection Denmarkaims to ensure that the Convention’s rules about access to genetic resources and indigenousknowledge as well as international patent rules do not stand in the way of each other, butrather support each other.

Along the same lines, the recently adopted International Treaty on Plant Genetic Resourcesfor Food and Agriculture provides for specific conditions for access for a number of cropplants and their wild relatives. In March 2003 the Danish Parliament decided that Denmarkcan ratify the Treaty.

Denmark’s specific initiatives with regard to biodiversity and natural resources abroad haveyielded considerable results over the past years. With regard to Denmark’s bilateral assist-ance cooperation with developing countries, Denmark will now follow up on the decisionsmade at the Johannesburg summit concerning natural resources and biodiversity. This willbe done by changing the broad approach seen so far to a more targeted approach focusingon specific areas for initiative, of which one will be direct natural resource management.Indirectly this will contribute to supporting implementation of the objective of the Con-vention on Biological Diversity and realisation of the Johannesburg objective concerningreducing the loss of biodiversity considerably by 2010 through new sector programmeswithin the areas health, education and water, and by focusing assistance to developing coun-tries in general.

Through work relating to the fourth replenishment of the Global Environment FacilityGEF, the financing mechanism for the UN Biodiversity Convention, Denmark is contrib-uting to implementing the Convention in developing countries. One quarter of the GEFfunds is being spent on biodiversity issues. Further, as from 2005 a new four-year frame-work contract will be made with the IUCN World Conservation Union, whose scientificcommittees and broad membership of governments, NGOs and international organisa-tions, provide a unique forum for work to promote sustainable management of natureresources, at international, regional and local levels.

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Local partnersInitiatives should be developed and implemented in a cost-efficient manner. In many places,local communities have already implemented small-scale projects to enhance and promotebiodiversity in the local natural surroundings – examples are water holes and ponds, plan-tations, taking care of small meadows and grassland areas. Nature which may neither beunique nor have great national importance. However these areas are key to creating thestepping-stones and the green networks of small local natural areas that can secure greatercohesion between large natural areas as well as the survival of biodiversity in the long run.

The so-called Agenda 21-work that stems from the 1992 Rio Summit is continuously beingdeveloped in many municipalities. The Agenda 21 programme means that local authoritiescan cooperate with the public regarding a Local Agenda 21 for the local area. A targetedinitiative by regional and local authorities to strengthen initiatives regarding nature in theLocal Agenda 21 work will set the path for specific Action Plans in the nature area, andthereby contribute to preserving and restoring local biodiversity.

Local and regional authorities must explain their Local Agenda 21-strategy for the first timeby the end of 2003. In this connection, the Ministry of the Environment issued a set ofguidelines for Local Agenda 21-strategies in 2002. The guidelines offer inspiration for ac-tions regional or local authorities can implement, for example actions to: increase the awarenessof what animal and plant species need in order to survive; establish biotopes, ecologicalcoherence between habitats, and improved living conditions for animals and plants in towns;and stop the use of pesticides. The objectives may be to enhance green areas in towns,expand areas with forests and nature, increase organic farming, etc.

In this connection the largest Danish municipality, the City of Copenhagen, is highly awarethat the green areas in Copenhagen, and the lakes, watercourses and wetlands, the Soundand the marine areas of the harbour are important recreational areas, and hold a greatpotential for promotion of biological diversity close to the urban population.

In accordance with for example the Aarhus Convention, local participation is also ensuredin larger nature projects that are implemented, for example through public hearings and bysetting up user groups.

Information, consultancy and good dialogue are all extremely important aspects in theimplementation of the Biodiversity Action Plan and are in accordance with the strategicobjectives of the Convention.

In cooperation with the local organisations, the Ministry of the Environment will considerwhether and how the local plan can enhance sustainable development in the local commu-nity.

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6National parks– cross-disciplinarypilot projects

336The development of Danish natural parks is a long-term project, owing to the fact thatDanish nature is not wild and untamed, but rather a result of interaction with humanactivities. Another reason is that the Danish Government wishes that national parks shouldbe anchored locally, and that decisions should be founded on a dialogue with the localresidents.

The objective of national parks is to strengthen nature and enhance the opportunities fordeveloping large coherent areas, including maintaining biodiversity, landscapes, and cul-tural-historical assets. The areas must represent different typical Danish habitats and land-scapes, improve the flora and fauna and the way they spread, safeguard the dynamics ofnature and the processes in ecosystems, and offer attractive and unique nature experiencesfor the Danish population and for tourists.

Initiatives to develop Danish national parks include both enhancement of the quality ofexisting nature, and restoration and establishment of new natural areas.

National parks mean that we can satisfy the need for increased coherence between naturalareas; reserve areas where nature can develop according to its own dynamics; solve a rangeof specific problems, for instance that nature suffers from lack of water, that light andopen spaces become overgrown, and that nature is affected by too many nutrients, pesti-cides etc. We can also cover the need for efforts to improve conditions for a number ofspecies on the Red List of threatened flora and fauna.

With this in mind, the projects are expected to focus on a broad spectrum of instrumentsfounded in a number of ministries, for instance planning, purchasing, conservation targets,and management plans for NATURA 2000 sites and species, support schemes under theRural Districts Programme, the Forest and the Nature protection Acts, regulation of fisher-ies, access to nature, and tools used in the management of species and genes.

In 2003/2004, the Ministry of the Environment launched seven pilot projects. The projectsdeal with the establishment of national parks (Lille Vildmose, Mols Bjerge, Møn, ThyKlitheder, the Wadden Sea, Gribskov/Esrumsø, and Læsø). The results of the projects willinclude analyses of the socio-economic and financial consequences of realising nationalparts in these areas. The results will be presented in 2005, and will be included in the Gov-ernment’s considerations on the establishment of national parks. Where national parks areto be established, the development of the parks will be closely linked to the managementplans for the NATURA 2000 sites covered by the national parks.

National parks– cross-disciplinary pilot projects

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7Conservation of existingnatural assets: naturalhabitats

357Natural habitats include forests, lakes, watercourses, bogs, freshwater meadows, coastalmeadows, dry grassland, heaths, dunes, small biotopes (waterholes, hedges etc.) and vari-ous marine areas and fjords, coastal lagoons, stone reefs etc. To this should be added thearable land that is normally not included in natural habitats proper. What is important is tosee the natural habitats in their ecological context, for instance systems of watercourses,river valleys, lakes, fjords and riparian zones, or coasts, dunes, dune heaths, coastal mead-ows and coastal slopes.

State authorities own and manage a number of terrestrial natural areas, primarily the Min-istry of the Environment (188,000 ha), the Ministry of Defence (approx. 32,000 ha), theMinistry of Ecclesiastical Affairs (approx. 17,000 ha), the Ministry of Transport (approx.10,500 ha), and the Ministry of Food, Agriculture and Fisheries (approx. 9,000 ha), a totalof approx. 257,000 ha (2,570 km2) or 6 per cent of Denmark’s area. State natural areas andthe marine territory are covered by the same rules as those applying to other areas, but inmany cases specific plans of operation and management are also applied. A total of 9.3 percent of Denmark is covered by the general rules of the Nature Protection Act (section 3)on conservation of natural habitats (lakes, watercourses, waterholes, bogs, coastal mead-ows, freshwater meadows, dry grassland, and heaths). About 4 per cent of Denmark islisted in accordance with the Nature Protection Act, and 7.4 per cent of Denmark fallsunder the NATURA 2000 network. There is an extensive overlap between areas owned bythe State, NATURA 2000 sites, and generally conserved and listed areas.

Like two-thirds of the forest area, by far the major part of the open land, including culti-vated agricultural land, a total of approx. 2,652,000 ha (approx. 26,520 km2), is owned byprivate owners. Many small nature areas such as meadows, dry grassland, and small biotopesare scattered between the intensively cultivated areas. These semi-natural areas are mostoften protected under the Nature Protection Act, and to ease the pressure from intensivecultivation on these habitats, or to prevent overgrowing of areas that are no longer used foragricultural purposes, EU agricultural support funds can be granted towards environmen-tally safe farming practices ensuring preservation and care of the areas, or towards settingaside arable land.

Regional authorities administer a number of rules on land use and are responsible forspatial planning of the open countryside via regional plans.

LegislationNational legislation offers the most important administrative tools for the protection andrestoration of biodiversity. The Government has decided that the Nature Protection Actand the Forest Act, both administered by the Ministry of the Environment, are to berevised, among other things to supplement the process of implementation of the HabitatsDirective. In connection with the revision of these Acts and with the implementation of the

Conservation of existing natural assets:natural habitats

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Water Framework Directive, a specific legal framework will be set up for planning andmanagement of NATURA 2000 sites.

The Act Environmental Targets Act, which was adopted in December 2003, lays down theadministrative and procedural requirements for planning of wetlands and international na-ture conservation areas (NATURA 2000 sites). The Act obligates the counties to prepareNATURA 2000 plans for Danish international nature conservation areas not situated inforests. This includes establishing objectives and preparing action programmes, as well asmaking sure that action programmes, which have been adopted, are implemented andcompleted. The proposal for a new Forest Act contains similar provisions on the duty ofthe Minister of the Environment to prepare NATURA 2000 forest plans for the wooded“fredskovspligtige” areas, i.e. areas that must be wooded in perpetuity, within NATURA2000 sites.

The proposal for an amendment of the Nature Protection Act and the proposal for a newForest Act also include tools that will enable the authorities to realise plans. These tools willmake sure that prior assessments are made of the consequences of those new activitieswhich may have significant impacts on natural areas and habitats for species within theNATURA 2000 sites, and they include provisions on active management of the areas inorder to achieve the objectives specified in the plans. It is presumed that this can be achievede.g. via agreements with owners about management of individual land areas or other meas-ures. However, if an agreement cannot be made, the authorities are required to order theowners to carry out the necessary measures.

The proposals moreover contain a general provision on the conservation of biologicalgrasslands over a certain size, as well as rules improving public access to nature, whereas thenew Forest Act e.g. will facilitate forest owners’ management of their forests according tonear-nature principles.

The Government has presented a proposal for a revision of the Agricultural Act and aproposal for management of agricultural land, both contributing to enhancing nature. Amongthe aims are to ensure that light and open habitats are under certain conditions kept free oftrees and bushes, to make it easier to establish new nature, including in connection with non-profit acquisition of land for nature purposes.

PlanningSpatial planning is an important instrument in the conservation and restoration of biodiversity.Planning takes place at several levels, with different objectives and at different levels ofdetail, ranging from national and regional planning, to municipal and local structure plan-ning.

The objectives are e.g. to make sure that continued development is on a sustainable basis,and to safeguard important Danish nature and landscape resources.

EIA (Environmental Impact Assessments) is carried out for projects which have significantimpacts on the environment. For a number of specific projects, EIA is obligatory, whereasfor other projects assessment of whether the project is covered by the EIA obligation isrequired.

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For a number of plans pertaining to agriculture, forestry, fisheries, water management,tourism etc., the SEA (Strategic Environmental Assessment) Directive requires an assess-ment of the potential impacts of the plans on the environment. In 2004, the Governmentpresented a bill that is to implement the provisions of the SEA Directive into Danishlegislation.

A new planning tool, the concept of “nature planning”, is being introduced. Nature plan-ning is a way of assessing the state of nature, establishing objectives, and building a basis forprioritising efforts in geographically delimited natural areas, such as international natureconservation areas, section-3 areas, or potential new natural areas.

Nature planning can be of use to the county in its work on:• Integrating the management of nature with other fields of activity in regional planning

and creating a framework for municipal planning.• Assessing where to expand the natural area of Denmark.• Providing the public with better information on natural assets.• Contributing to fulfilling Denmark’s EU commitments regarding nature

(the EC Habitats Directive, in particular).• Qualifying the decision basis for use of nature management and making the

administrative basis for the execution of authority clear.

In the 2005 regional plan, the regional authorities have access to a tool to secure moretargeted efforts at regional level. This nature planning concept can be used generally for allnature areas, but – according to the Act on environmental targets etc. for wetlands andinternational nature conservation areas – the concept can also be used as a tool to preparemanagement and action plans relating to the practical implementation of the Habitats Di-rective and the Water Framework Directive up to 2009. 2009 inaugurates a new regionalplanning period, in which nature planning can be developed further as a basis for prioritisation.

The Danish landscape is to a great extent a cultivated landscape. It has been cultivated andbuilt on for generations and contains flora and fauna that have adapted to its special char-acteristics. Especially the coast and shallow-water marine areas contribute to Denmark’sunique characteristics and international significance. In nature conservation work the land-scape, and in particular the Danish coastline, has special priority. The Ministry of the Envi-ronment has designated and described the most important national coastal geological inter-est areas in Denmark. In cooperation with the Funen County and the County of Aarhus,the Ministry of the Environment is developing a landscape analysis method with a view toinspiring the counties to encompass the conservation of typical and characteristic Danishlandscape types in their continued work on regional planning.

The Ministry of Culture will carry out a nationwide survey of areas of particular archaeo-logical interest in connection with spatial planning. Furthermore, the Ministry will continueits cooperation with the Ministry of the Environment, counties, and municipalities on des-ignating and securing natural environments of cultural-historic value in spatial planning.Apart from safeguarding Danish cultural heritage, this will also help safeguard nature andbiodiversity conservation in the areas – depending on their characteristics. Cooperationwith counties on registration and designation of stone and earth walls will be developedfurther with the objective of establishing permanent protection of a coherent network ofprotected natural areas.

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The nature planning of counties and nature management is widely based on a strategyfounded on a regional/local conservation structure where emphasis is on conservation andrestoration of ecological coherence. The nature strategy of the counties, on the one hand,protects existing and often threatened assets, and on the other hand, creates a basis forconditions which, in the long term, will lead to the development of a more varied andvaluable nature.

The basis for securing overall planning of coastal waters, allowing concerted managementof terrestrial and marine coastal areas, will be evaluated in relation to the implementation ofthe Water Framework Directive and the Habitats Directive and in relation to the EU rec-ommendation for implementation of integrated coastal zone management.

Most natural areas are integrated in active farm units. The Ministry of Food, Agricultureand Fisheries has launched a number of initiatives to improve the operation of light andopen natural habitats. Beside the Environmentally Friendly Agricultural Practices (agro-en-vironmental schemes) initiatives include pilot and demonstration projects on grazing asso-ciations and nature plans.

The Ministry of Food, Agriculture and Fisheries and the Ministry of the Environment willjointly consider the role and relationship with nature planning that nature plans – at propertylevel – can have in the protection of biotopes.

Conditions for Danish agriculture and agribusiness are undergoing rapid changes. There ismore pressure globally from free trade, and within the EU there is a wish for simplificationof the Common Agricultural Policy and for limitations in subsidies. Efforts in Denmark tosolve the environmental problems of agriculture have produced good results, however inmany areas nature and the environment are still under pressure, just as there is fierce compe-tition for acreage between agribusiness and e.g. natural areas. However, developments arenot uniform throughout Denmark. It is therefore paramount that a decision is made as tohow a balance between targets for agriculture and other land-use interests, e.g. nature con-servation interests, is struck. In 2003, the Ministry of the Environment instigated a projectto produce ideas for the development of regional agricultural strategies that can be usedwhen making decisions on developments in agriculture. This project is the basis for a numberof projects based on dialogue, which the Minister will launch in collaboration with countiesinterested in preparing regional agricultural strategies. Farmers and other stakeholders willbe given the opportunity to participate in these local dialogue-based projects.

Nature-friendly management of state-owned nature areasMinistry of the EnvironmentFor areas owned by the Ministry of the Environment (188,000 ha) and managed by theDanish Forest and Nature Agency, detailed management plans will be prepared, based forinstance on a review of areas under section 3 of the Nature Protection Act (general protec-tion) and other open natural areas. The plans give instructions for efforts to maintain andimprove the natural elements and the biodiversity of the areas. The plans will also form thebasis for current management initiatives and major projects to restore endangered habitats.

The management of the forests owned by the Ministry of the Environment will now bechanged into near-nature forestry, and the transition process will be completed within onetree generation. By the end of 2004, the Danish Forest and Nature Agency will prepare anaction plan for the transition to near-nature forestry.

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Ministry of Defence – management plans for exercise and training areasIn the years after the Ministry of Defence adopted its first environment strategy, the generalobjective of the Ministry has been to protect and safeguard the rich diversity of these areas.The objectives are met by detailed management plans for individual areas. The Ministry ofDefence will continue these efforts in the future. Plans for the 46 exercise areas under theMinistry and for a number of small areas under the Home Guard are expected to be com-pleted by the end of 2005.

The Danish Forest and Nature Agency is contributing to this work with technical andprofessional knowledge. All management plans cover periods of 15 years and a total ofapprox. 32,000 ha nature areas. The first plan was prepared in 1993, and a revision of thefirst 16 plans of management will therefore be carried out in 2005-2006. The remainingplans will be revised when needed. Work under the management plans is, thus, an ongoingprocess. The revision of the plans will also include evaluation of the management measurestaken, to document their biological effect. The Ministry of Defence therefore expects tofulfil the objective of the Danish Government’s and the EU to curb the deterioration ofbiodiversity in the areas owned by the Ministry by as soon as 2005.

Ministry of Ecclesiastical Affairs – management of land under the Danish ChurchThe Danish Church owns a total of approx 17,000 ha of land, i.e. 4-500 holdings operatedas farm units. The Ministry of Ecclesiastical Affairs will contribute to designating areas andsafeguarding biodiversity in the areas that have so far only been used for extensive farming(typically small meadows, forest and bog areas). This also applies to areas that form part ofthe surroundings of churches or are located close to urban areas, and that hold specialrecreational values for the local community. The church authorities contribute with infor-mation on the areas, allowing it to be included in a possible overall registration of particu-larly valuable nature areas and in future work to safeguard the natural assets they hold.

Ministry of Food, Agriculture and Fisheries – management plans for areas underthe MinistryThe areas owned by the Ministry of Food, Agriculture and Fisheries include approx. 5,000ha coastal meadows, freshwater meadows, bogs and dry grassland, administered with dueregard to the natural assets they hold. The aim is to increase the quality and biodiversity ofthe areas, and management plans will be prepared to this end. According to plans, the firstmanagement plan for the large interconnected semi-natural areas with special biologicalqualities will be ready before the end of 2004. One example is Margrethe Kog, whereefforts to transform a coastline (affected by salt water) into humid marshland have suc-ceeded in replacing a valuable biotope by another equally valuable and biologically attrac-tive area. Another example is the coastline (coastal meadows at the Wadden Sea outside thedikes from Esbjerg to the Danish-German border), where operation plans also aim at fur-thering the biodiversity.

The semi-natural areas are used for grazing, and the management plans will include direc-tions for the use of fertilizers and pesticides, water levels, grazing intensity, time of yearwhen livestock is turned out, and the duration of the grazing period, with a view to estab-lishing/safeguarding the diversity in the area.

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Ministry of TransportThe Ministry of Transport owns a number of areas, which are managed by the DanishCoastal Authority, i.e. a total of approx. 10,500 ha along the west coast of Jutland, includ-ing large natural areas, for instance Agger and Harboøre Tange, Skallingen and RømøDam.

Active management of nature areasA number of ministries, and the Ministry of the Environment and the Ministry of Food,Agriculture and Fisheries in particular, are cooperating closely with the regional authorities,sharing the responsibility for management and maintenance of a number of endangeredhabitats, for instance dry grassland, freshwater meadows, coastal meadows and heaths,which can only be maintained by active management efforts, like extensive agriculture (grazing,cutting of hay) or felling of trees when needed. Within forestry, efforts will focus more onnature-friendly and, thus, often less intensive forms of operation. The Danish municipalitiesare also responsible for the management of large public areas.

For a number of years, attention has been directed towards the impact of modern inten-sive agriculture on nature and the environment, and efforts are being made to solve a rangeof important problems. Often, the measures taken in Denmark may improve the naturalassets of the landscape and, at the same time, solve the problems presented by marginalland that is no longer profitable for farmers to cultivate. This applies both to drained fieldswith shallow depth of soil, which are of marginal importance today, for instance certainriver valleys and reclaimed coastal land, and the dry sandy fields, where irrigation is largelyneeded but impossible in practice. And, further, part of the approx. 220,000 ha agriculturalland which are now set aside under the EU agricultural schemes, no matter the potentialthey present in terms of natural values.

Areas designated under the EU Habitats and Birds DirectivesActive management of NATURA 2000 sites will be strengthened through the proposalsfor amendments to the Nature Protection Act and the Forest Act, which has been pre-sented by the Danish Government in 2004. In the Acton environmental targets etc. forwetlands and international nature conservation areas, overall plans have been set up forefforts to meet the obligations under the Habitats Directive and the Water FrameworkDirective up to 2009. Active management will, thus, be based on nature planning at regionallevel and on the implementation of the nature monitoring programme NOVANA. Therequired legislative basis is thus provided for overall nature planning and for the achieve-ment by the authorities of the objectives for nature planning in those situations whereagreement cannot be reached with the owner of the land involved.

As far as marine habitats and species are concerned, the EU is working to clarify a numberof technical matters. Therefore, planning and management of these habitats and specieshave not progressed as far as work relating to terrestrial habitats. However, the Act onenvironmental targets etc. for wetlands and international nature conservation areas em-powers the Minister to draw up plans for marine areas.

The National Forest ProgrammeIn 2001 the organisations, institutions and authorities involved agreed on a set of voluntaryguidelines for sustainable forestry at individual property level. Among the primary princi-ples of the guidelines are the transitions to near-nature forestry, thereby promoting the use

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of tree species adapted to the specific locality in which they grow, indigenous species inparticular, which may form part of forest types that are stable, sustainable and self-renew-ing in the long term. Furthermore, the guidelines state that biodiversity should be consid-ered to a greater extent, for example by leaving more dead wood in the forests and restor-ing the natural hydrological balance.

In 2002 the Government adopted Denmark’s National Forest Programme, which sets outthe current political framework for Danish forestry. The key objective for the developmentof forestry is development towards sustainable forestry in accordance with internationallyrecognised principles of economic, ecological, and social consideration. The core of theNational Forest Programme is the transition to near-nature forestry based on Danish guide-lines for sustainable forestry. Under the programme, 10 per cent of the total forest areamust by 2040 be operated with the primary aim of safeguarding nature and biodiversity. Amajor tool in this direction is the revision of the Forest Act, widening the framework forforestry and the scope for biological diversity. In practice this means that forestry will in thefuture focus more on natural processes and forest succession. Moreover, special accountwill be taken of obligations under the Habitats and the Birds Directives. The Forest Pro-gramme follows up on the objective of increasing the forest cover to 20-25 per cent of thearea of Denmark within a tree generation (80-100 years). This objective will be furtherdeveloped in order to increase the value and biodiversity resulting from afforestation.

The international objective is to promote sustainable forestry in accordance with interna-tional goals for the European Communities and for Europe in general.

ListingListing at state level will in the future focus on listings with clear national interests, and, thus,on listings securing the best and most cost-effective solutions for nature, seen from a na-tional perspective.

Together with the Danish Society for the Conservation of Nature and with Danish Re-gions, a working group has been set up to discuss preservation work in the future, i.e. thecriteria for and prioritisation of preservation issues, aiming at providing a common basisfor work, to be used in the on-going planning of targeted efforts.

Action against discharges of nutrientsThe Government intends to take action against the considerable impact from nutrients inDanish aquatic and natural areas. The Action Plan for the Aquatic Environment II hasprovided the desired results, and the technical/scientific basis for a third Action Plan hasbeen established.

Prior to the establishment or enlargement of animal production units the law requires thatEIA procedures are carried out in order to ensure that vulnerable nature and the aquaticenvironment – NATURA 2000 sites in particular – are not exposed to increased nutrientpressure. In 2003 the Minister for the Environment asked the competent authorities tomake sure that EIA assessment of pig farms focuses especially on international natureprotection areas. With the anticipated revision of the Nature Protection Act, the Govern-ment wishes to ensure that counties are obliged to intervene in cases where there is evidencethat the impact of existing activities on natural areas conflicts with the Habitats Directive.

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Strengthened efforts to protect particularly endangered andexposed habitatsIn a number of habitats, for instance nutrient-poor heaths, fens, dry grassland and clearwaterlakes, nutrients from surrounding areas and activities have a negative impact. The Govern-ment will present specific initiatives to safeguard important nature values in a number ofparticularly endangered habitats, for instance the remaining bogs, dry grassland, and clearwaterlakes.

Management of marine natureShallow Danish marine areas hold important international natural assets that we are obligedto protect. A significant reduction of impacts from nutrients which can lead to seriousoxygen depletion, from oil spills, and from a wide array of environmental toxins, is essen-tial in this connection. Moreover, fisheries must be managed in a sustainable manner inorder to protect or restore fish species and their habitats.

The protection of marine nature is highly dependent on international cooperation. TheGovernment therefore contributes actively to the development and implementation of aEuropean marine strategy, aiming at gathering international efforts to protect the marineenvironment and forming the basis for action at EU level. During the Danish Presidency,Denmark hosted a conference in December 2002, where the framework for action wasdecided. Already in March 2003 agreement was reached at EU level on detailed initiativesand a timetable for the European Marine Strategy. The Strategy covers all major topics:reduction of landbased and shipbased discharges, safety of navigation, monitoring andinspection, chemical issues, nutrients, fisheries etc., and will be ready in 2005.

Denmark is following work to reduce the threat of pollution from ships in the Interna-tional Maritime Organisation IMO, the EU, and HELCOM. Special efforts are being madeto prevent disasters from oil pollution from single-hull tankers, not least triggered by thevery serious consequences such incidents in Danish waters may have for biodiversity. Den-mark has actively supported future EU rules requiring heavy oil to be carried in double-hulltankers, and accelerated phasing-out of single-hull tankers. In this connection Denmark hasproposed similar rules within the auspices of HELCOM, ensuring that the Baltic countriesare also brought up to EU standards. Moreover, the Danish Government has proposedthat HELCOM prepares an application to the IMO about designation of whole or part ofthe Baltic Sea as Particularly Sensitive Sea Areas – PSSA. On 2 April 2004, the IMO offi-cially designated the Baltic Sea a Particularly Sensitive Sea Area. This classification nowenables tightening of the rules applying to the transport of oil through the Baltic Sea. InOctober 2002, following a joint Danish-Dutch-German application, the Wadden Sea wasdesignated a PSSA, as the fifth area in the world..

Implementation of NATURA 2000 at sea will be given very high priority. Large NATURA2000 sites have been designated in the coastal areas, including three large, new bird protec-tion areas in northern Kattegat. However, a working group under the European Commis-sion is working to solve a number of technical issues, to pave the way for determination ofcriteria for favourable conservation status for habitats and species and for the revision ofthe designation criteria. When this work is completed the Government will initiate work todetermine the objectives and initiatives in NATURA 2000 marine areas, in line with otherEU countries. The pilot project on national parks at sea mentioned earlier will also focus onthis work. Future NATURA 2000 sites in the open sea, up to 200 nautical miles fromcoasts, will not be designated until the Commission working group has completed its work.

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The EU Rural Districts ProgrammeThe environment- and nature-related measures in the EU co-financed rural districts pro-gramme are important instruments in efforts to promote nature considerations in agricul-ture and forestry. The Government has decided that the nature elements in the Rural Dis-tricts Programme should be increased for measures taken both under the Ministry of Food,Agriculture and Fisheries and under the Ministry of the Environment. At the end of 2003work was initiated to renew the rural districts programme along two lines: growth anddevelopment, and nature and the environment.

The Rural Districts Programme includes a number of schemes aiming at improving naturaldiversity:Agro-environmental measuresAs from 2003 the scope of Particularly Sensitive Agricultural Areas (PSAA) has been ex-tended, to cover more natural and semi-natural areas, including section 3 areas under theDanish Nature Protection Act and NATURA 2000 sites, thus significantly increasing thearea of land eligible for agro-environment schemes. A further new element is that theregional councils must designate PSAA buffer zones (not below 20 m wide) along natureand semi-natural areas, hedges, small plantations and similar biotopes.

The structure of subsidies for individual PSAA measures has been simplified, and the fol-lowing measures revised:Protection of the aquatic environment and nature: the regional authorities and thefarmer can cooperate to define a combination of terms for the establishment and opera-tion of areas that are adapted to the local needs for the protection of nature and theenvironment, and at the same time meet the wishes of the farmer to the greatest possibleextent. Certain standard terms apply, for instance a ban on pesticides. On the other hand,the terms for limited or no application of fertilisers, grazing intensity, fodder supplementand cutting of hay etc. are subject to negotiations. It is anticipated that the terms fixed in theagreement may vary, from cultivation proper of the area, to management and care or set-aside. Furthermore, subsidies can be granted in connection with the special terms laid down.

Establishment of wetlands, primarily to utilise the ability of the areas to reduce nitrogenleaching to the open aquatic environment. This also promotes the maintenance of thisparticular habitat, which is endangered by the intensive cultivation of agricultural land. Theareas will be established and maintained as grassland or nature areas, must not be convertedto other purposes. Furthermore, the use of pesticides is not allowed. Individual agreementsfor the operation of these areas can be made, in line with the above measure “Protection ofthe aquatic environment and nature”.

Extensive buffer zones, either 1) spray-free margin strips, or 2) spray-and-fertiliser-freestrips.

Organic farmingAs part of the reform of the present subsidy schemes for organic farming, a new nation-wide agro-environment measure was introduced as from January 2004, specifying an aver-age maximum of 140 kg total N/ha, and prohibiting application of pesticides on the areasregistered under the scheme. Both conventional and organic farmers are eligible for sup-port, but organic farmers rank highest. The scheme is expected to contribute to enhancingflexibility when purchasing and selling land, and, thus, to increase the areas cultivated byorganic/environmentally friendly practices.

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As per 1 January 2004 the area of land in Denmark cultivated organically covered approx.170,000 ha.

Pilot and demonstration projects: grazing associations and nature plansIn spring 2003 a large-scale pilot and demonstration scheme was launched, aiming at im-proving and increasing the extent and quality of nature and semi-natural areas by demon-strating, explaining, and increasing interest in grazing associations and nature plans, andaiming at testing and demonstrating different concepts of grazing associations and natureplans.

The preparation of nature plans at farm level, or collective nature plans, can serve as avaluable tool to improve the state of nature on farmland. Apart from initiating specific careand nature restoration projects, the preparation of the plans helps make the farmer moreaware of the natural assets on his farmland and thereby strengthen the incentive to apply aproactive nature management.

Forest schemesAt present, measures targeted towards forests and afforestation represent approx. 10 percent of the overall budget of the Danish Rural Districts Programme. Forestry measureseligible for EU co-financing include funds for: afforestation, increased establishment ofdeciduous forest etc. in existing forests, and establishment of robust forests after the stormdamage in 1999. Moreover, the EU is also co-financing the establishment of state forestsafter the damages in 1999.

Follow-up on the decision to reform the EU Common Agricultural PolicyIn June 2003, the EU decided to implement a reform of the Common Agricultural Policy“A long-term perspective for sustainable agriculture”, ensuring that the European Commu-nity can meet the objectives for sustainable agriculture and development of rural districts. Interms of biodiversity and nature conservation, the primary element of the decision is thedecoupling of direct support to agriculture, strengthening of rural policy, and more flexibleset-aside schemes. The decision will be implemented in Denmark over the coming years.

Decoupling of direct supportPayment of decoupled support and other direct support is based on cross-compliance, i.e.a number of EU regulations for the environment, for animal welfare and for food safety(for both humans and animals) must be observed. Moreover, support is only given if theareas are kept in “good agricultural and environmental condition”, to be defined by theMember States on the basis of a common framework and common standards. The com-mon framework includes terms for the exploitation of terrestrial resources and minimumlevel of maintenance, and also aims at preventing deterioration of habitats (natural assetsand biological diversity).

Strengthening of rural policyThe rural policy will be strengthened, in terms of scope by extending possible focus areasunder rural districts regulation, and also financially by transferring EU funds from directsupport to EU co-financing of national rural districts programmes from 2006. Further-more, for some of the existing measures the levels of support have been raised, and, finally,the maximum EU co-financing level has been raised for environmentally friendly agricul-ture from 50 to 60 per cent. Therefore Danish co-financing rates have been similarly re-duced for these schemes.

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Set-asideRequirements for compulsory set-aside will still prevail – basically corresponding to 10 percent of areas with grain, oil seeds and protein crops. Under the reform, areas can be setaside in a more environmentally friendly manner, since, in the future, the minimum area willbe 0.1 ha, and the minimum width has been reduced to 10 m; in special environmentalconditions down to 0.05 ha and 5 m.

Compensation for EU environmental requirementsUnder the Rural Districts Regulation certain possibilities exist for compensation for restric-tions caused by the implementation of the Bird Directive and the Habitat Directive. TheGovernment will investigate the possibilities for using EU rules on area-based support forfarmers, in order to offset the costs and the loss of income borne by farmers who have toreduce the exploitation of land in accordance with a number of EU environmental re-quirements.

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8Nature restoration andnew habitats

478Nature restoration and new habitats

In recent years, nature restoration and afforestation have led to increased variation andbiodiversity in nature. However, further efforts are still needed, if ecological coherencebetween the many different isolated natural areas is to be restored.

The aquatic environment and natureThe Government will establish cross-disciplinary efforts in favour of the aquatic environ-ment and nature. Efforts aimed at the aquatic environment must therefore be targeted atdesirable effects in nature. This applies, in particular, to both aquatic and terrestrial naturalareas high on the priority list.

The Government caused the adoption of a new Act on environmental targets etc. for wet-lands and international nature conservation areas. This Act is to ensure better coordinationof water and nature planning. Thus there will be greater coherence between initiatives toimprove the quality of nature and initiatives to improve the quality of Danish water resour-ces – in watercourses, coastal waters and groundwater. With the Environmental Targets Actcounties are obligated to prepare binding plans for their management of NATURA 2000sites.

New wetland areasA decision was made in late December to carry out preliminary investigations of well over8,000 ha of land. Another 5,000 ha of land are being, or have already been, restored underthe Action Plan for the Aquatic Environment II.

Via the Rural Districts Programme, the Ministry of Food, Agriculture and Fisheries cansupport initiatives which lead to increased natural diversity, in terms of meadows and otherwetland areas. Initiatives include exploiting the ability of wetland areas to reduce nitrogenwashout to the open aquatic environment via denitrification. Areas such as these will beestablished and maintained as grassland or nature areas, and must not to be converted intoother uses; nor may they be treated with plant protection products.

Nature restorationSince 1989 the Ministry of the Environment has spent approx. DKK 2 billion on naturemanagement. In the years to come the Ministry will carry out activities and implementrestrictions within the field of nature restoration and afforestation. This will be realised interms of enhanced targeting of such activities as special-interest areas, e.g. related to NATURA2000 sites; pilot projects on the establishment of national parks; suburban areas with limitednatural biodiversity; areas containing vulnerable or threatened drinking water reserves; andpossibilities for creating coherence between natural areas.

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The Ministry of Culture will continue its cooperation with the Ministry of the Environmentand regional authorities concerning nature restoration projects of cultural significance. Anexample of one such completed project combining the interests of several actors is the raisingof the water level in Store Åmose, a dried-out marsh in West Zealand, whereby archaeo-logical findings of international significance may be preserved.

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9Forvaltning arterog gener

519The latest overall assessment of the status of species in Denmark was given in the nationalRed List from 1997. According to the Red List, 2,799 species, out of a total of approxi-mately 10,600 species distributed between 19 different plant and animal groupings, areconsidered at risk of disappearing from the Danish landscape; whereas 343 species areconsidered extinct.

The Danish Forest and Nature Agency is responsible for the management of endangeredspecies. Other sectors manage species which are not endangered, but which exist inpopulations big enough to allow for commercial exploitation. The sectors responsible mustintegrate considerations for the environment in their policies so that the management ofcommercial species takes the necessary measures to protect those species that are threateneddue to the exploitation of the commercial species.

Sustainable aquaculture and fisheries managementThe fisheries industry is under great pressure due to diminishing resources in recent years,and due to new initiatives for sustainable development being introduced. The EU Com-mon Fisheries Policy (CFP) was significantly strengthened with the 2002 Reform, by whichexisting regulation measures were extended and supplemented with a number of newinitiatives. The objective of the CFP Reform is to create a balance between fishing capacityand fishing stocks.

StatusFishing directly impacts fish stocks. The impact is managed via fisheries rules such as fishingquotas and technical measures, which put a limit to the quantities of fish that may be takenout of the sea by fishing and make sure only adult fish stocks are fished. The rules are basedon comprehensive and internationally organised biological advice.

Besides fisheries, natural and other man-made factors also impact the size, composition,and development of fish stocks, and have repercussions on the ecosystems fish are a partof. Continued development of the system for scientific advice concerning these impacts onfish stocks is needed.

Some fish stocks have suffered overfishing, which has lead to very low stocks. Moreover,there are unintended by-catches and discards, and the EU fleet is still oversized comparedto available resources.

General objectivesOverfished stocks must be recovered as quickly as possible through specific managementplans. Over time, the principle of multi-annual management plans will gradually be ex-tended to all stocks, but to begin with it will be applied to those stocks that are mostthreatened with unsustainability.

Management of species and genes

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Regulation of catch and fishing efforts will – as in the case of cod in the North Sea – becomplementary to Total Allowable Catch (TAC)/quota management for stocks being re-covered. A long-term management plan for cod in the North Sea entered into force on 1February 2004.

CapacitySubsidies for fleet renewal will end by 1 January 2004. Until then, aid to capacity renewalwill be phased out through the removal of more capacity than is introduced for vesselsover 100 GT. The implementation of special scrapping of vessels has also been adopted.Moreover, no aid must be given which undermines sustainable fisheries.

Data collection and scientific adviceCollection and quality assurance of data must be improved on a regular basis. This appliesto data on fish stocks, fisheries, targeted and non-targeted species, and ecosystems. Im-proved data will enhance the basis for scientific advice and thus for making decisions.

Selective fishing, discards and by-catchesThe EU Fisheries Council will encourage the development of fishing methods that mini-mise the negative impact on the environment. On the basis of analyses of reasons for dis-cards, and the biological and economic consequences of discards, the Fisheries Council willencourage the development of selective fishing equipment. It appears from the Commis-sion’s communication on a Community action plan to reduce discards of fish that such aplan will provide a general overview of discards, analyse the reasons behind discards, pointout biological and economic consequences, and examine and clarify possible solutions tothe problem.

In 2003, the European Commission submitted a proposal on regulation of fisheries inorder to reduce by-catches of harbour porpoise. The national action plan for reducingunintended by-catches of harbour porpoise is expected to be revised in 2004. Denmarksupports common EU regulation in this area.

Fresh-water fishingToday, fresh-water fishing in Denmark is mainly recreative. The Government will also takeinitiatives to create ecological sustainability in this field. The Government therefore intendsto phase out the release of domesticated trout (bred in freshwater fish farms) in Danishwatercourses over a period of some years. After the phase-out, all new fish released mustbe bred from fish living in the wild. The Government moreover intends to gradually trans-fer appropriations for release of fish to restoration of watercourses.

MusselsThe Ministry of Food, Agriculture and Fisheries has set up a Mussel Committee to pro-mote environmentally and economically sustainable exploitation of mussels and oysters inDanish waters. Amongst other things, the Committee will come up with recommendationsin order to ensure cohesive management of these resources.

AquacultureStatusAquaculture is responsible for about 3 per cent of total Danish fisheries production butonly 22 per cent of the value. This corresponds to the value of cod fisheries, until now themost important of Danish fisheries for direct human consumption. Due to environmental

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regulations, quantities have remained virtually unchanged since implementation of the firstAction Plan for the Aquatic Environment.

The Government’s objective is for the Danish aquaculture industry to have proper produc-tion methods which favour both the environment and the commercial profit of the indus-try. Moreover, regulations should be made more simple and comprehensible.

Freshwater and seawater fish farms must be environmentally approved, and marine farmsmust live up to similar requirements. Regional plans by regional authorities cover e.g. inter-national nature conservation areas and provide guidelines and targets for the quality and useof Danish waters. An environmental impact assessment is required where fish-farmingfacilities are assumed to have considerable impacts on the environment.

Bypass flow and other fauna corridors in connection with freshwater fish farms will beestablished in order to improve the physical and biological conditions of watercourses.Similarly, restoration of watercourses and fish management will be carried out. Water con-sumption and discharges in connection with inland fish farming will be reduced throughincreased recirculation and use of cleaning methods, as well as through use of water fromwells and drainage, for instance establishment of model fish farms. It will, thus, be possibleto remove watercourse dams, and to significantly enhance the conditions for natural floraand fauna in stretches of the watercourses affected by fish farming.

The fulfilment rate for targets for the quality of water downstream from freshwater fishfarms has increased from 14 per cent in 1989 to 56 per cent in 2000. Since 1987, dischargesof nutrients from freshwater fish farms have been halved, and discharges from seawaterfish farms have been reduced to about two thirds of earlier rates. Existing Danish marinefish farms comprise 1-2 km2, or 0.002 per cent, of Danish waters. Furthermore, theycontribute less than 0.1 per cent of total additions of nutrients to coastal Danish waters.

The revision of the Common Fisheries PolicyIn January 2003 in connection with the Common Fisheries Policy Reform, the Agricultureand Fisheries Council concluded that the role of aquaculture is becoming more and moreimportant. The Council approved the Commission’s strategy for sustainable developmentof European aquaculture, which prescribes an annual growth of 4 per cent. The Councilpointed out that this may necessitate e.g. adaptation of existing environmental legislation,plus harmonization of the implementation and enforcement of the rules within the area.

National efforts – nature-friendly aquacultureFrom 1 April 2005, the water flow near fish farms must always be at least half of theminimum average water flow in the stream, and new approvals for catchment of surfacewater will be granted for a maximum of 10 years at a time. Fauna corridors will be securedvia watercourse restoration, establishment of bypass flow etc.

The Ministry of the Environment is implementing a two-year test scheme for “modelinland fish farms” where the effect of cleaning methods will be measured and documentedin order to serve as a basis for sustainable expansion of production. The objective is toregulate discharges rather than fodder.

The Committee on Marine Fish Farms has presented a number of recommendations aimedat reducing the risk of environmental impacts from marine fish farms, including recom-mendations regarding the establishment of fish farms in areas with large exchanges of

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water; calculations of spreading in connection with the assessment of environmental im-pacts and possible new sites for fish farms; securing against depletion of fish; and regardinga standardised calculation and monitoring model for documentation of nutrient additions.

The Mussel Committee will encourage sustainable and economically sound exploitation ofmussels and oysters in Danish waters, including via farming. Before 1 May 2004, the Com-mittee will provide the Minister for Food, Agriculture and Fisheries with recommenda-tions, with a view to ensuring e.g. cohesive management of these biological resources.

Economic incentives to environment-improving measures will be in accordance with theGovernment’s targets for Danish aquaculture and with the initiative: Making Markets Workfor Environmental Policies – Achieving Cost-effective Solutions.

Species requiring special effortsAccording to the Convention on Biological Diversity we are committed to protectingspecies, including their genetic variants. In this context, it is vital that the habitats of plantsand animals are preserved. However, in a number of situations it is equally important tomake an effort to counter present or potential threats. This includes for example invasivespecies driving away indigenous species, the risk of oil pollution, and /or animals beingkilled due to road traffic etc. Genetically modified organisms (GMOs) will be meticulouslyassessed before being released into the environment.

The Government will make sure to prepare plans for the management of species, andgroups of species, which have been selected from a set of detailed criteria based on inter-national obligations, degree of rarity, ecological key role, or important socioeconomic and/or nature-management issues. Such plans may also include wild relatives to crop species.

Furthermore, the Government will make sure to disseminate knowledge to the publicabout endangered, vulnerable, and rare species, as well as national species that Denmark isinternationally responsible for, as part of the overall target of local commitment and own-ership.

Conservation and sustainable exploitation of genetic resourcesThe Government will make sure that genetic resources of rare wild species or populationsare preserved through the combination of species and habitat conservation, including in-corporating genetic aspects into species management plans. The Convention on BiologicalDiversity distinguishes between in-situ conservation of species in their natural surroundings,and ex-situ conservation of species in e.g. botanical gardens and zoos or in gene banks. Ex-situ conservation may be used as a supplement to in-situ conservation when dealing withendangered species.

The Government will intensify its cooperation with the Ministry of Food, Agriculture andFisheries and the Ministry of the Environment in order to ensure efficient coordination ofthe registration and conservation of genetic resources in Denmark. Who will be responsi-ble for conservation will be clarified, as will the need for systematic collection of geneticresources. These efforts should at the same time provide an overall view of relevant collec-tions from interalia museums and NGOs. Considerations for preservation of genetic re-

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sources may also form part of the regional nature planning, with a view to specific man-agement or restoration of the species.

Work is being carried out under the Convention on Biological Diversity to establish aDanish centre for “Global Strategy for Plant Conservation”. Such a centre would be ableto look closer into problems pertaining to the sowing of wild Danish species, which mayinfluence nature as a scientific frame of reference and as an environmental indicator.

In 2003, the Ministry of Food, Agriculture and Fisheries presented a strategy for the con-servation of farm animal genetic resources. This strategy was followed up by a new Com-mittee on National Genetic Resources. With regard to plant genetic resources within agri-culture, in 2004 the Ministry of Food, Agriculture and Fisheries is working on a strategy andaction plan covering domesticated species as well as their wild counterparts. Denmark istaking part in international cooperation, e.g. in the Food and Agriculture Organisation ofthe United Nations (FAO). In spring 2003, the Danish Parliament agreed to ratify the FAOInternational Treaty on Plant Genetic Resources for Food and Agriculture. Coordinatedratification of the Treaty is being aimed at in all EU countries.

The Convention on Biodiversity serves as the foundation for the legally binding FAO Treaty.The objectives of the Treaty are conservation and sustainable utilisation of plant geneticresources for food and agriculture as well as a fair and proper sharing of the benefitsachieved from utilisation of these resources. The Treaty establishes a special system, whichwill facilitate access to the plant genetic resources and make sure there is an equal sharing inconnection with use of these resources. The system covers plant genetic resources of anumber of specific plant families which the member countries are committed to makingavailable.

Nordic cooperation is important in the genetic resources field: e.g. a large part of the ex situconservation of Danish plant genetic resources for food and agriculture is managed by acommon Nordic institution, the Nordic Gene Bank.

On the basis of a report instigated by the Nordic Genetic Resources Council, and workcarried out within FAO, Denmark will make sure there is access to and sharing of benefitsin connection with use of plant genetic resources. Consumers of genetic resources, muse-ums, interest organisations, gene banks, research institutions, and other relevant parties, willbe invited to take part in this work.

Work on availability of access and benefit sharing in connection with the use of the wildrelatives of domesticated species will also be of general importance to wild species.

Within the area of forests, the Strategy for Natural Forests from 1992 aims to preserve thebiological diversity of Danish forests, including the genetic resources contained within them.Further to the Strategy for Natural Forests, the Ministry of the Environment in 1994 pre-sented a Strategy for the Conservation of Genetic Resources of Trees and Bushes in Den-mark. This strategy primarily aims at in situ conservation. Moreover, a network of geneconservation populations is being designated on land owned by the Ministry of the Envi-ronment. Designation is expected to be complete in 2004. Ex situ conservation of geneticresources of trees and bushes in Denmark is managed through cooperation between theMinistry of the Environment (the Forest and Nature Agency and the Danish Centre forForest, Landscape and Planning) and the Arboretum (the Royal Veterinary and Agricultural

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University under the Ministry of Science, Technology and Innovation). This happens throughuse (refinement and seed sources) as well as through clone archives and arboretums etc.Botanical gardens can contribute to the conservation of rare and endangered species via exsitu storage of tissue cultures or living, cultivated plants in seed and gene banks. Denmarkcontributes to the development of conservation plans for endangered tropical tree speciesand populations in a number of developing countries via the Danida Forest Seed Centre.

Management of invasive species and GMOsInvasive speciesEfforts to prevent the introduction of alien species in nature will be strengthened.

The Government will work to ensure that problems regarding introduced or invasive spe-cies are followed up within the EU as quickly as possible. This will be as follow up to therelevant guidelines adopted in the Convention on Biological Diversity in order to coordi-nate initiatives taken in other international contexts such as within the IPPC (InternationalPlant Protection Convention), CITES, the Bern Convention, IMO, the OSPAR Conven-tion, and HELCOM. Denmark has also been instrumental in the development of a con-vention about dead freight in ships, which has significance for the introduction of possibleinvasive species.

The situation concerning invasive species will be monitored intensely at national level. Inorder to improve local involvement, knowledge about invasive species, which is beingcollected by nature organisations, regional and local authorities, will be an integral part ofoverall nature monitoring and nature management of invasive species. Moreover, specificmanagement plans for selected problematic species or groups of organisms will be pre-pared when relevant. In this regard, the Government hopes that nature organisations, landowners, and local initiatives will be integrated systematically in work to control and combatinvasive species. The authorities will continue to coordinate work and disseminate informa-tion about invasive species.

Before 2010, existing legal and non-legal measures will be analysed in order to establishwhether they are adequate in relation to invasive species.

A working group will be established involving representatives from relevant authorities andorganisations and relevant businesses. The task of the working group will be to elucidatecurrent regulations and administrative practices in all forms of release of animal and plantspecies in Denmark. Detailed guidelines and proposals for new and clearer regulation willbe prepared on the basis of the work of the group. As part of its work, the working groupshould assess whether it is possible to identify plant and animal species, which must not bereleased without prior approval.

GMOsThe Government will make sure that administration of the area of gene technology re-mains preventive. This means that any specific application of a genetically modified organ-ism must be subject to a risk assessment and formal approval must be obtained before anyactivity may set in motion.

Denmark ratified the Cartagena Protocol on Biosafety in 2002. The Cartagena Protocol isa supplementary agreement of the parties to the Convention on Biological Diversity. Theobjective of the Protocol is to guarantee an adequate level of protection in connection with

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transboundary movement, handling and use of living modified organisms (LMOs); that isorganisms created by help of modern biotechnology, which, in principle, means ‘livingGMOs’. These EU rules will enter into force in spring 2003 and the first meeting of theparties will be held in February 2004.

Less dead animalsA number of species is on the decline due to high mortality rate caused by impropermanagement or by conditions, requiring renewed attention.

A working group under the Ministry of the Environment with participants from authori-ties, organisations etc. put forward an action plan in 2002, which aims at reducing thenumber of animals killed on the roads. The Ministry of Transport and the Ministry of theEnvironment are working on implementation of the plan, e.g. by establishment of faunacorridors in connection with road systems.

The idea is to examine the need for a restriction of the rules regarding the introductionfrom abroad of animal species caught in the wild in order to make sure that individualanimals introduced originate from species and populations which are managed accordingto the principle of sustainability. At the same time, the need for a restriction of the require-ments related to transport of animals will be examined, so as to reach an outcome wherefewer animals die during capture and transport.

Hunting of huntable game and game birds is relatively intense in Denmark. However,according to assessments it is possible to sustain the intensity of hunting, taking into accountthe size of the different populations of game animals. Hunting seasons and methods will beregulated via the Hunting and Game Management Act. In pursuance of this Act, a consid-erable number of wild game reserves has been established in recent years, which is particu-larly beneficial to migratory and hibernating populations of waterfowl. A campaign toreduce the number of woundings has shown positive results in recent years and will there-fore be continued to achieve further reductions.

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10Increased public awarenessof and joint responsibilityfor nature

5910Public commitment to sustainable management and protection of nature is crucial if weare to reach the desired results. Public commitment is a prerequisite for creating broadunderstanding of the way nature works, its fragile state, and the possibilities for ending thedecline in biodiversity. It is therefore essential that we disseminate knowledge and educatethe public about nature, its resources, and biodiversity, if an understanding of the compli-cated interconnections in nature, and between nature, man and society, is to become com-mon knowledge. One of the most significant prerequisites for encouraging nature aware-ness among the public is to improve the public’s opportunity for experiencing nature andoutdoor recreation.

Involving the publicAccording to the Aarhus Convention, the public, and industries dependent on nature, must,as far as possible, be involved in the management of nature and in the implementation ofthis Action Plan.

Future national parks will serve as demonstration sites for testing different measures to giveanimals and plants larger, cohesive areas, in which to roam. Magnificent and characteristi-cally Danish nature should be available to the Danish public, and the objective of work onpilot-project areas is to make sure local commitment becomes embedded in future naturalparks. In this respect, the Government will seek to create a balance between, on the onehand, the activities and growth of nature, and, on the other hand, the activities and growthof industry and tourism.

An integral part of the Ministry of the Environment’s management of public areas is tomake a broad array of nature and outdoor recreation activities available to especially chil-dren and young people, and at the same time take into account the significance of theseareas to biodiversity. Nature and outdoor recreation activities will be expanded as part ofthe Ministry’s welfare profile and in close cooperation with local citizens, clubs and associa-tions etc.

Similarly, public access to nature will be expanded through voluntary schemes in productivecooperation between owners and users of natural areas, while taking into account the areas’significance for biodiversity. Public knowledge about the rules of conduct in nature mustbe improved through increased information.

Biodiversity, economy and welfareThe economic value of recreation is becoming increasingly recognised. Both in relation toDanes as well as in relation to the many tourists visiting Denmark each year. More or less allDanes make regular use of nature. Similarly, the qualities of the Danish landscape attractmany tourists from abroad each year. In other words, outdoor recreation means good

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quality of health and life and is thus of great value to residents and tourists alike. TheGovernment therefore believes that both the costs and the benefits of our nature policyshould be examined, and that these aspects should be part of decision-making processes. Itis equally important to shed light on the commercial consequences, including consequencesfor tourism and outdoor recreation, which may follow from plans, programmes, andconstruction projects within the environment and nature areas.

The use of socioeconomic environment analyses is in line with the Government’s change ofcourse with regard to its environmental policy; the Government’s principle of “Makingmarkets work for environmental policies. Moreover, such analyses will facilitate decisionsabout priorities and cost-effective solutions in environment efforts.

New partnershipsThe Government will foster new partnerships between the private sector and the publicsector where the private sector can help carry out projects. Such projects, of course, willneed support from local citizens as well.

There are many local-community nature projects, which may serve to improve the biodiversityof natural areas in people’s close neighbourhoods. Such projects include taking care ofsmall meadows and grassland areas, water holes, ponds or plantations.

In addition, there is local Agenda 21 work at municipal level, which, among other things,deals with biodiversity. These efforts can be improved scientifically in the years to come.The Government will instigate possible pilot projects in both rural and urban municipalities.

Teaching biodiversityAccording to the National Strategy for Sustainable Development, Denmark is committedto integrating the concept of sustainable development in all future adjustments of its edu-cation system. In the same way, Denmark is committed under the Convention on Biologi-cal Diversity to disseminate knowledge and information that will bring about public aware-ness and understanding of the importance of biological diversity in nature. Thus, biodiversityand nature conservation must be part of all information about nature.

Biodiversity and nature conservation is therefore thematically integrated in all relevant sub-jects at all levels in the Danish education system. This applies to the Folkeskole (the DanishPrimary and Lower-Secondary School), under the Act on the Folkeskole, and will be workedinto the implementation of the forthcoming reform of the Gymnasium (the Danish Up-per-Secondary School Reform).

Work is in progress to identify new indicators for measuring the dissemination of theconcept of sustainable development in the education sector. The Act on the Folkeskoleprovides opportunity for the individual school to design more flexible teaching, which inturn will increase the opportunities for using the teaching resources of nature centres andscience centres to a higher degree.

For upper-secondary education programmes, the overall objective of the teaching is toheighten the student’s environmental awareness. In connection with a reform of the youtheducation programmes, an agreement was adopted in 2003 to strengthen the natural sci-

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ences and to enhance the students’ knowledge of nature via more opportunities for coop-eration between nature interpreters and gymnasiums.

The Ministry of Education has provided support for and placed great priority on thedevelopment of teaching methods and teaching of subjects about nature and the environ-ment, and will continue to do so in future.

Information and nature interpretation for allThe Nature Interpretation Scheme will be continued and further improved as a tool topromote increased awareness, understanding and joint responsibility for nature. The Gov-ernment will encourage nature interpreters to disseminate knowledge about the Conven-tion on Biological Diversity, and to explain the significance of local nature for internationalbiodiversity. An important tool in this regard is the 10 principles for promoting sustainabledevelopment via nature interpretation. These principles were adopted at the InternationalRanger Federation’s Fourth World Congress in 2003 following a Danish initiative.

Nature Schools will be retained and expanded with new measures pertaining to biodiversity,and new schools or centres will be established where needed, e.g. in relation to the pro-posed national parks.

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11Build-up of knowledge, naturemonitoring, and evaluation ofthe Action Plan

6311Build-up of knowledgeResearch and development will ascertain that we have a good foundation for making deci-sions, and that nature and environmental policies are being based on scientific knowledge.The Government will expand basic knowledge build-up and nature monitoring to includeknowledge on how to preserve and exploit nature in a sustainable manner, and how toimprove our knowledge about solutions that ensure we get our money’s worth in terms ofmore nature. The Government will also increase work on socioeconomic analyses of costsand benefits in connection with conservation of biodiversity. Several general requirementsfor knowledge build-up are linked to the specific initiatives of this Action Plan:

• expansion of fundamental knowledge about occurrence and distribution of habitatsand species, and development of individual indicators for status and developmentprocesses

• analyses of the link between biodiversity and eutrophication in terrestrial and aquaticecosystems and possibilities to reduce eutrophication,

• development of agricultural practices that safeguard high environmental standards andbiodiversity

• development of methods to reduce the loss of nutrients from agriculture• establishment of a research programme for organic farming• development of models for elucidation of operational and socioeconomic consequences

of different measures, including voluntary agreements• cross-disciplinary and holistic analyses of opportunities and conflicts in connection with

conservation and land use• expansion of knowledge about public and tourist consumption patterns regarding use

of nature and outdoor recreation.

The individual, specific need for knowledge build-up must be assessed and described inmore detail by institutions under the Ministry of the Environment and the remaining rel-evant research institutions. The Government places great emphasis on disseminating theexisting knowledge on the different subject areas as widely as possible so that as manyinterested people as possible can get insight into the results. The knowledge base should alsoinclude the mapping and surveying activities made by green organisations.

Nature monitoringOverall nature and environment monitoring will develop and improve our understandingof trends in biodiversity and whether nature conservation efforts are producing the resultsdesired. The concerted work of interest organisations and the Agreement Committee ofthe NOVANA programme will map possible ways of incorporating the data collected bynature organisations, authorities, counties, and municipalities in overall nature monitoringand management efforts.

Build-up of knowledge, naturemonitoring, and evaluation ofthe Action Plan

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In this way the Government will ensure that overall nature and environment monitoringcontributes to the necessary overview of biodiversity trends in Denmark, including speciesin general and species, which Denmark is committed to protect. As part of the work on theRed List, the Ministry of the Environment will organise an extensive symposium on thecurrent state of Danish nature in 2004/5.

The Inter-Ministerial Working GroupThe Inter-Ministerial Working Group will carry out a mid-term evaluation of the imple-mentation of the Action Plan in 2006/07. The Government’s Inter-Ministerial WorkingGroup on Biodiversity will monitor the implementation of the different elements of theAction Plan and prepare annual status reports. These reports will also make up part ofDenmark’s reporting to the meetings of the Conference of the Parties to the Conventionon Biological Diversity.

The mid-term evaluation will serve as basis for decisions concerning adjustments to theAction Plan and its continued implementation until 2010 when a final evaluation of targetperformance will be carried out.

A system of targeted and comprehensible indicators, which show the general trend incertain main groups within biodiversity, will be defined via collaboration between the insti-tutions and interest organisations involved.

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12Legislative initiatives andfinancing

6712Results the Government has already achieved include: work on the establishment of na-tional parks, the publication of a national forest programme, and the designation of 254international habitat areas. So as to live up to Denmark’s international commitments withinnature conservation, the Government has presented a number of bills regarding the furtherimplementation of the Bird Protection Directive, the Habitats Directive, and the WaterFramework Directive.

These Directives have been or will be implemented into Danish legislation via the Act onenvironmental targets etc. for wetlands and international nature conservation areas, via aproposed new Forest Act and via proposed amendments to the Nature Protection Act.

A key element is that efforts to safeguard or restore a favourable conservation status for thedifferent natural areas and habitats within international nature conservation areas must bebased on nature management plans that make sure efforts are prioritised and well-foundedscientifically. In the proposal for a new Forest Act, planning pertaining to forests is pre-sumed to be the responsibility of the Minister for the Environment, whereas the remainingplanning pertaining to international nature conservation areas is presumed to be the respon-sibility of county councils. Moreover, the procedures applying to county councils’ natureplanning according to the Environmental TargetAct, also apply to the councils’ water man-agement, cf. the Water Framework Directive. The main parts of the required managementplans must be prepared before 2009.

Expenses pertaining to the implementation of the Action Plan will be paid within theexisting financial framework of the Ministry of the Environment, Ministry of Food, Agri-culture and Fisheries, and remaining ministries. There are also possibilities for EU co-fi-nancing and partnerships with private enterprises.

Legislative initiatives and financing

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AAnnex

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Overview of the role and function of the different Danish ministries inthe area of biodiversity

The Ministry of the Environment serves as coordinator of the implementation of theAction Plan for Biodiversity and is responsible for ensuring compliance with the StrategicPlan for the Convention on Biological Diversity. The Ministry of the Environment is thenational contact authority to the Convention on Biological Diversity and is responsible fornational coordination and international negotiations within this area.

Both as administrative and land-use authority, the Ministry of the Environment is responsi-ble for the development and realisation of a number of initiatives. These comprise e.g.initiatives intended to reinforce the conservation and restoration of endangered naturalhabitats and species, as well as the genetic variation within wild species. In this context, aspecial aim is to achieve or maintain favourable conservation status for designated areascovered by the EU habitat and bird protection areas.

Furthermore, the Ministry of the Environment is responsible for cross-ministerial initiativeswithin the Ministry’s area, such as development or improvement of various measures, in-cluding improved use of economic instruments and securing public joint-responsibility andinvolvement in the realisation of the Action Plan. There is a need for nature and environ-mental monitoring supported by suitable indicators, and a number of new subjects, such ase.g. national parks and near-nature forestry, will undergo special assessments.

At international level, the Ministry of the Environment will contribute to guaranteeing thatthe Convention on Biological Diversity plays a guiding role when biodiversity issues arenegotiated between countries. The Convention is also to encourage cooperation betweenrelevant international conventions and other processes in the field of nature. One suchexample would be work to protect areas that will be dealt with at the Meeting of theConference of the Parties to the Convention in March 2004. Moreover, the Ministry willwork towards creating more binding international cooperation on forests and sustainableforestry through international agreements and conventions.

At national level, the Ministry of the Environment manages several of Denmark’s mostvaluable natural areas through the Forest and Nature Agency and through the state forestdistricts. A central objective of the management of these areas, which cover a total of188,000 ha of land, is to contribute to preserving and restoring biodiversity in accordancewith the 2010 target. The dissemination of information about nature and nature interpreta-tion, in combination with efforts to improve the public’s opportunities for experiencingnature, are also central to the Agency’s land-use activities.

Annex A:

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The Ministry of Food, Agriculture and Fisheries, and the Ministry of the Environmenthave primary responsibility for nature management in Denmark. The scope and nature ofthe Ministry’s responsibility are defined in agriculture and fisheries legislation – areas whichin many regards have relevance for the state of biodiversity on Danish arable land and atsea. The Ministry of Food, Agriculture and Fisheries also administers a number of impor-tant EU co-financed subsidy schemes targeted towards different forms of environment-friendly farming, totalling around 260,000 ha, cf. Chapt. 6.

Furthermore, via the National Land Funds, the Ministry has an agricultural land pool (cur-rently 9,000 ha), and in some instances manages areas with special natural assets such asMargrethe Kog in South Jutland. The Directorate for Food, Fisheries and Agri Businessadministers several land consolidation cases in relation to nature restoration projects (nowmainly under the Action Plan for the Aquatic Environment II), and in relation to afforesta-tion projects. The use of the services under the Directorate has been an essential factor inrestoring and establishing new natural areas over the past 10-15 years, while at the sametime enabling many farmers to solve structural problems pertaining to their property.

The Ministry of Food, Agriculture and Fisheries is moreover responsible for conservationand sustainable use of plant genetic resources within farming and farm animal geneticresources, including coordination of Danish efforts in international cooperation in these ar-eas within FAO and the EU. The Ministry also takes part in Nordic cooperation on geneticresources and in the European collaborative programme on plant genetic resources, ECP/GR.

Within fisheries, the Ministry of Food, Agriculture and Fisheries administers fisheries in thesea and in fresh waters. The purpose of the EU Fisheries Policy is to ensure a sustainabledevelopment within fisheries, and the objective is to create a balance between fishing capac-ity and fishing stocks. The objective of the Danish Fisheries Act is to make sure there is asustainable basis for commercial fisheries and associated industries and provision for rec-reative fishing. This will be done via management that ensures conservation and facilitationof living resources in salt and fresh-waters, and via protecting other animal and plant life.

The Royal Danish Ministry of Foreign Affairs. The Ministry channels significant assets toprojects in a number of cooperation countries via Danish International Development As-sistance. The purpose of these projects is to encourage measures that preserve nature andbiodiversity, and to encourage sustainable management of natural resources commensuratewith targets laid down in the Convention on Biological Diversity. In 2003, biodiversityconservation projects in e.g. Botswana, Mozambique, Tanzania, Bhutan, Thailand, Malaysia,Nicaragua, and the forest seed centres in Cambodia, Laos, and Vietnam received Danishinternational development assistance. Also Denmark’s multilateral assistance favours natureconservation to a significant extent.

In the developing countries, the material needs of most parts of the poor population arecovered via use of biological resources, and where this use is not sustainable, the environ-ment and nature are worn down and biological diversity destroyed.

The main priority of Danish development assistance, including environmental assistance, isto combat poverty and contribute, directly, to minimising the loss of biodiversity. Encour-aging sustainable use of natural resources and biodiversity can serve as a significant tool incombating poverty. In the Convention on Biodiversity, this mutual dependence is expressed

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in the combined consideration for, on the one hand, nature protection, and on the otherhand, economic development.

Therefore the Convention’s objectives of preserving biodiversity, utilising it in a sustainablemanner, and securing a fair and appropriate distribution of its resources have great impor-tance within development and environmental assistance. This was emphasised with thedecision to reduce substantially the loss of biodiversity before 2010, taken at the WorldSummit in Johannesburg in 2002.

Danish efforts to secure sustainable use of natural resources in general via developmentassistance and environmental initiatives include a number of work areas covered by theConvention. These include development of national strategies and policies, the establish-ment of governance systems, monitoring of biodiversity, and management and operationof natural areas focusing on protection and sustainable use. Efforts should be viewed incontext with other initiatives, including implementation of the Ramsar Convention and theWashington Convention (CITES). Similarly, programmes to ensure an integrated manage-ment of water resources, which in most cases also means the preservation of ecologicalquality in e.g. watercourses and aquatic fringe areas, will be implemented.

The Ministry of Defence owns exercise areas that are home for some of the most impor-tant biological natural assets in Denmark. Since it adopted its first environment strategy in1993, the Ministry has therefore considered protection and conservation of these naturalassets one of its foremost objectives. The Ministry of Defence has ensured this objectivevia management plans for all its exercise and training areas (totalling about 32,000 ha).Moreover, the Ministry has carried out nature restoration projects at Oxbøl firing range andexercise area and elsewhere.

Via the Road Directorate, the National Rail Authority, the Danish Coast Directorate, andthe Civil Aviation Administration, the Ministry of Transport has overall responsibility forroad and railroad planning, coast protection, fixed installations in the marine territory, andfor the establishment of airports.

In their planning, the Ministry has furthered a number of nature conservation considera-tions e.g. in connection with road layout, bridge connections across the Great Belt and theSound, and the establishment of fauna corridors. Furthermore, coast protection initiativeshave been made more nature friendly over the years. The Ministry of Transport managescertain natural areas on the west coast of Jutland; about 10,500 ha in all.

As a general rule, the Ministry of Transport will strive to guarantee the necessary mobilitywhile making sure to design the physical infrastructure so that the environmental impactfrom increased mobility is minimised as far as possible.

The Ministry of Education is making sure that biodiversity and the concept of sustainabilityare covered by teaching at all levels in the Danish education system. The Convention onBiological Diversity means we have a direct duty to make sure these subjects are promotedin teaching.

The Danish Ministry of Economic and Business Affairs is responsible for a number ofoverall considerations aimed at encouraging environmentally sustainable business develop-ment. Furthermore, the Ministry has a special responsibility for guaranteeing development

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within tourism, which takes account of tourist demands in terms of good opportunitiesfor experiencing nature, and at the same time respects important nature protection interestslinked to natural and environmental assets.

The Ministry of Ecclesiastical Affairs. The Danish National Church owns a total ofapprox. 17,000 ha of land containing various natural assets. Churchyards with old stonewalls and church towers constitute homes for species that are otherwise rare in Denmark.The churchyard stone walls are listed under the Danish Nature Protection Act, and the useof pesticides in churchyards is prohibited.

There are around 2,000 churches in Denmark. Of these, 1,650 date back to the MiddleAges. Traditionally, Danish churches have had a prominent place in the Danish landscape.They are protected by special construction layouts under the Danish Nature Protection Act.This protection concerns building activities that require special approval. Apart from this,the regional plans often contain guidelines for the safeguarding of churchyard landscapes.

The Danish Ministry of Culture administers legislation on fixed ancient monuments (burialgrounds, ruins, earth and stone walls etc.), which are often homes for unique biodiversity.Moreover, the Ministry administers the Museum Act, the Consolidated Listed Buildingsand Preservation of Buildings and Urban Environments Act, and some provisions in thePlanning Act. The Cultural Heritage Agency maintains the state’s interest in planning activi-ties pertaining to areas of cultural-historic significance. It also provides guidance within thefield of cultural and natural heritage. The maintenance of cultural-historic interests andsafeguarding natural assets often converge. On this background, the Cultural Heritage Agencyhas the opportunity through activities related to nature protection to cooperate with otherauthorities on listing land areas and nature restoration.

The Ministry of Justice is responsible for regulating the approval and supervision ofzoo facilities etc. These facilities may function as important breeding centres for endangeredspecies, cf. duties regarding ex-situ conservation of species. The Ministry of Justice is gen-erally responsible for legislation concerning animal welfare in Denmark. In this connection,the Ministry has issued a series of rules of significance to biodiversity, such as rules onprivate ownership of exotic pets and the sale of such animals by animal dealers.

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Annex B:

The Government’s ten-point programme for implementation of theEuropean Habitats and Bird Protection Directives

1) Designation of supplementary habitat and bird protection areas, 254 habitat areasand 112 bird protection areas in total, including substantial expansions in the Kattegat.

2) Encouragement of counties to include nature management in their regional plan for2005, inspired by a catalogue of ideas on nature planning.

3) Issue technical criteria for favourable conservation status:a) assistance in case processing and establishing a uniform basis for municipal and

county consequence and environmental impact assessmentsb) basis for nature management and for specific initiative plans for species and

natural habitatsc) basis for the national monitoring programme, NOVANAd) basis for implementation of legal requirements for setting up conservation

targets (the Nature Protection Act and the Forest Act).

4) Monitoring commitments to be incorporated in the national monitoring programme,NOVANA.

5) Legislative amendments contributing to fulfilling the commitments under theDirectives:a) the Forest Actb) the Nature Protection Actc) The Act on environmental targets etc. for wetlands and international nature

conservation areasd) landbrugsloven (the Agricultural Act)e) lov om drift af landbrugsjorden (bill on management of agricultural land).

6) Extra funding for management of habitat and bird protection areas:a) part of the extra DKK 50 million in the 2003 Finance Actb) part of the extra funds provided in the 2004 Finance Act, cf. an agreement

between the Government and agreeing parties in May 2003 regarding moreforest and natural areas.

7) Action plan for biodiversity:a) conservation of existing natureb) targeting of nature restoration and other initiatives to establish new naturec) clarification of unanswered questions concerning buffer zones.

8) Integration of aquatic and natural environments in the Plan for the AquaticEnvironment III.

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9) Increased focus on EU subsidy schemes for agriculture, forestry, and nature:a) active use of set-aside schemes and implementation of guidelines for good

agricultural and environmental conditionb) efforts aiming at NATURA 2000 sites will be made part of agro-environmental

schemes (to be developed by a working group)c) active Danish efforts to influence European Commission work on co-funding

of NATURA 2000 commitments, based on the Commission’s communicationin autumn 2003 on NATURA 2000 funding

d) increased Danish focus on the EU “LIFE” scheme.

10) Nature management plans and binding programmes for NATURA 2000 sites:a) in the context of the National Environmental Research Institute of Denmark’s

conservation criteria via nature management by countiesb) state guidelines, when the legal basis is in place.

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ThyLille Vildmose

Læsø

Mols Bjerge

Vadehavet

KongernesNordsjælland

Møn

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